In addition to the required classroom work in mechanical drawing, each apprentice serves four or five months of his term in the regular drafting rooms of the company. The classroom is equipped with models of railway appliances and machinery, together with laboratory apparatus for teaching the laws of mechanics. No machine tools or other shop equipment are used in the classes. The course covers about 700 hours of instruction exclusive of the time spent in regular drafting room work. About 20 apprentices finished the course in 1915.

Several of the building and printing trades' labor unions take an active interest in the training of apprentices, and in at least two instances the unions maintain evening classes for teaching trade theory. The Electrical Workers' Union, made up principally of inside wiremen, conducts apprentice classes taught by journeymen. The International Typographical Union course for compositors and compositors' apprentices is undoubtedly the best yet devised for giving supplementary training in hand composition. It is taught by journeymen in evening classes, under the supervision of the central office of the Typographical Union Commission, to which all the work must be submitted. In February, 1916, about 100 students were enrolled, of whom approximately one-third were apprentices and two-thirds journeymen. The course consists of 46 lessons in English, lettering, design, color harmony, job composition, and imposition for machine and hand folding. The classes are held at the headquarters of the union. As the students' daily practice in the shop provides plenty of opportunity for the acquisition of manual skill, no apparatus or shop equipment is used in connection with the course.

The apprentice school conducted by the Y.M.C.A. represents another type of apprentice training. The instruction is given during the day. The apprentices are sent to the school by various firms in the city under an arrangement whereby the boys attend four and one-half hours each week during regular shop time. In February, 1916, the enrollment consisted of 46 apprentices, practically all from the metal trades. The employers pay the tuition fee, which amounts to $20 a year. The course requires four years' work of 40 weeks each, a total of 720 hours. It comprises instruction in shop mathematics, drawing, English, physics, and industrial hygiene. No shop equipment is used. Fifteen boys were graduated from the course this year.

The factory apprentice school of the Warner and Swasey Company and New York Central Railroad type possesses many advantages over any kind of continuation instruction carried on outside of the plants where the boys are employed. A better correlation between the class and shop work is possible together with a more personal relation between teacher and pupils than is usually found when the pupils are drawn from a number of different establishments. It must be admitted, however, that this method of training apprentices is not feasible except in very large plants, as in small classes the teaching cost becomes prohibitive. There is little probability that it will ever be adopted by enough employers to take care of more than an insignificant proportion of the boys who enter the skilled trades.

The results obtained, here and in other cities, through cooeperative schemes, such as the Y.M.C.A. continuation school, are in the main disappointing. Their failure to reach more than a few of the boys who need trade-extension training is due partly to the fact that they operate under a condition that is fundamentally unjust. One employer interviewed during the survey stated the case very clearly: "I can see no good reason why I should make pecuniary sacrifices for the benefit of my competitors. Very few of my apprentices remain until the end of their term, because by the time they have completed their second year other firms which make no effort to train their quota of skilled workmen for the trade steal them away from me. Any plan for the training of apprentices which does not apportion the burden among the different establishments in direct proportion to the number of men they have, simply penalizes those public-spirited employers who participate in it."

CONTINUATION TRAINING FROM 15 TO 18

The years between 15 and 18 are among the most important in the life of the young worker. If left to his own devices during this period, he is very likely to lose much of vocational value of his earlier education, because he does not grasp the relation which the knowledge he acquired in school bears to his daily work. As a result the problem of supplementary instruction at a later age, when he wakes up to his need for it, becomes much more difficult than if trade-extension training had been taken up at once when he entered employment.

The vocational interests of young workers and the social interests of the community are both opposed to the current practice of "graduating" boys from the public schools at the ages of 15 or 16 and then losing sight of them. The fact that the large number who go into industrial occupations will not or cannot remain in school beyond these ages does not absolve the school system from further responsibility for their educational future. There should not be a complete severance between the boy and the school until he has reached a relatively mature age. In other words, the school system should maintain, as long as possible, such a relation with him as will help to round out his education and lead him to continue it after reaching manhood.

It is the opinion of the Survey Staff that the only practicable solution of this problem lies in the day continuation school, backed by a compulsory law which will bring every boy and girl at work under the age of 18 into school for a certain number of hours per week. Only through a comprehensive plan that will reach large numbers of young workers can the difficulties inherent in the administration of small classes be overcome. The night schools have never been successful in holding boys long enough to make more than a beginning in trade-extension training. It is certain that growing boys should not be expected to add two hours of study to their nine or 10 hours of unaccustomed labor in the shop. Both individual and community interests demand that this problem be taken up in such a way as to obviate the sharp cleavage between the boy's school life and his working life. From every point of view it is unwise to permit him to lose all contact with the educational agencies of the city during his first years at work.

The compulsory continuation school avoids the difficulties which are responsible for the common failure of those schemes which depend for their success on the initiative of individuals or the voluntary cooeperation of employers and trade unions. One of its great advantages is that the principle on which it is based makes for equal justice to all. There can be no doubt that the decline of apprentice training in the shops is due partly to the fact that employers find that much of the time and money it costs goes toward providing a skilled labor force for competitors who make no effort to train young workers. The cooperation of employers on a comprehensive scale will be secured only when the burden is equally shared.

THE TECHNICAL NIGHT SCHOOLS

Night classes are conducted in both of the technical high schools for two terms a year of 10 weeks each, the pupils attending four hours a week. A tuition fee of $5 a term is collected, of which $3.50 is refunded to those who maintain an average attendance of 75 per cent. No special provision is made for apprentices as distinct from journeymen, and the trade classes are attended by a considerable number of wage-earners employed in occupations unrelated to industrial work. The list of courses offered during the past year, with the number enrolled in each course at the beginning of the second term, is shown in Table 12.

A glance at the list of courses shows at once that while the vocational motive is given first importance, the schools also aim to provide instruction in cultural subjects which have only an indirect vocational application. Less than one-third of the students are pursuing courses which are directly related to their daily work. The remainder are enrolled in courses which have little or no connection with their daily occupations. In but four of the courses—machine shop, architectural drawing, printing, and sheet metal work—are more than half of the students employed in directly related occupations.

TABLE 12.—COURSES AND NUMBER ENROLLED IN THE TECHNICAL NIGHT SCHOOLS, JANUARY, 1915

Number Course enrolled

Mechanical drawing 328 Machine shop 222 Electrical construction 159 Sewing 103 Mathematics 89 Architectural drawing 83 Pattern making 73 Woodworking 67 Chemistry 59 Sheet metal drawing 52 Cooking 46 Foundry work 36 Agriculture 31 Printing 27 Sheet metal shop 23 Business English 20 Electric motors 19 Arts and crafts 18 Millinery 18 Electricity and magnetism 16 ——— Total 1,489

The policy of the schools is to form a class in any subject for which a sufficient number of students make application. Only a small proportion of the pupils attend more than one year, and the mortality from term to term is very high, although the tuition fee plan insures fairly good attendance during the term. The data collected by the survey indicate that the average length of attendance is approximately two terms—the equivalent in student hours of less than three weeks in the ordinary day school.

Most of the men who enroll in night school classes need a course of at least two or three years. All but a few, however, insist on having their supplementary training in small doses. Frequently they want only specific instruction about a specific thing, such as how to lay out a certain piece of work or how to set up a particular machine tool. They want to secure this knowledge in the shortest possible time, and very few want the same thing. A course of two or three years does not appeal to them. Another difficulty is that their previous educational equipment varies widely, and some are not capable of assimilating even the specialized bit of trade knowledge they need without a preliminary course in arithmetic. As the personnel of the classes changes to a marked degree from term to term, the courses undergo frequent modifications. Apparently the teachers and principals have made a sincere effort to adapt the instruction to the demands of the men who attend the schools, but the fact is that the difficulties inherent in such work make it impossible to organize the classes on any basis except that of subject matter, which means fitting students into courses, rather than adapting courses to the needs of particular groups of workers.

The enrollment is far below what should be expected in a city of nearly three-quarters of a million inhabitants. The total number of journeymen, apprentices, and helpers from the skilled manual occupations, receiving trade instruction in the night schools, is considerably less than one per cent of the total number in the city.

A large enrollment is necessary for efficient administration. Success in specializing courses in night schools, as in day schools, requires a large administrative unit. The possible variety of courses is in direct ratio to the number enrolled. In a class of 200 carpenters there would probably be, for example, 10 or 15 men who need specialized instruction in stair-building. On the basis of the present enrollment of 40 or 50 carpenters the class would dwindle to three or four, with the result that the per capita teaching cost becomes prohibitive.

The relatively small result now obtained is not the fault of the schools, but is due principally to the fact that the great field of evening vocational instruction is treated by the school system as a mere side line of the technical high schools. The evening classes are taught by teachers who have already given their best in the day classes. The enrollment cannot be greatly increased so long as this type of education is handled as one of the marginal activities of the school system, manned by tired teachers and directed by tired principals. It is a totally different kind of job from regular day instruction and requires a different administrative organization, with a responsible head vested with sufficient authority to meet quickly and effectively the widely varying demands of its students. This will require the speeding-up of administrative methods in the establishment of courses and the employment of teachers, a freer hand for the principals as regards both expenditures and policy, and most important of all, the organization of all forms of continuation and night school instruction under a separate department.

A COMBINED PROGRAM OF CONTINUATION AND TRADE-EXTENSION TRAINING

In considering the general conclusions of the survey as to what should be done in the matter of trade preparatory and trade-extension training in both day and night schools, it must be borne in mind that these two types of vocational training are still in the experimental stage. Their future development will probably involve a wide departure from conventional school methods and the evolution of a special technique through trial and experiment. At the present time we can only formulate certain of the main conditions to which future advance in these fields must conform.

First of all, it must be recognized that such work is a big job in itself and cannot be successfully conducted as an appendix of the day school. It is worth doing well, or it is not worth doing. It needs an organization sufficiently elastic and adaptable to quickly make adjustments to unusual and unexpected conditions. It needs the supervision of a competent director who can devote to it all his time and energy, and a corps of teachers who not only know how and what to teach, but who possess a firm conviction of the value and utility of this kind of instruction. In the hands of teachers who bring to it only the margin of interest and energy remaining after a hard day's work in the high school, or who are unable to comprehend the radical difference between teaching a boy in the day school 35 hours a week and teaching a boy four hours a week in the continuation school or evening class, the full measure of success cannot be expected. The employment of day teachers for night school work has never been other than a makeshift, and the insignificant results attained in night schools throughout the country have been due in great measure to this cause.

Apart from the fact that the interests of adolescent workers imperatively demand the establishment of day continuation schools, an additional argument in favor of such schools is that they would provide a means for making the night trade-extension work effective, through the use of continuation day school teachers for night school work. Such a plan would mean that teachers employed on this basis would have charge of a day continuation class during one session of four hours, and a night class of two hours, making a total of six hours' work per day. A plan of this kind would make possible the establishment of the fundamental conditions for successful trade—preparatory and trade-extension training in the night schools. The present system is unjust to both teachers and students;—to the students because the man or boy who sacrifices his recreation time to attend night school has a right to the best the schools can give; to the teachers because no teacher can work a two-hour night shift in addition to seven or eight hours in the technical high school without seriously impairing his efficiency.

The development of this plan would necessitate the establishment of two centers, one located in the eastern and one in the western section of the city. In these centers should be housed the day vocational school, the day continuation classes, and the night vocational classes. This would relieve the technical high schools of a task which does not belong to them, and which by overloading the teachers seriously interferes with the work they were originally employed to do. At present a considerable number of the technical high school teachers are devoting from one-fifth to one-fourth of their total working day to elementary teaching, as most of the work in the night schools is below high school grade.

By bringing together all the trade preparatory and trade-extension work under one roof, it is possible to secure the highest efficiency in the use of equipment. Expensive shops can be justified only on the basis of constant use. If the suggestion for the establishment of a vocational school is acted upon, such future contingencies as the continuation school should be borne in mind in planning the buildings and equipment, so as to permit of extensions as they may be required. It is practically certain that universal continuation training for young workers up to the age of 17 or 18 will be made compulsory in all the progressive states of the country within the next decade. The Ohio school authorities should get ready to handle the continuation school problem before the example of other states and the overwhelming pressure of public opinion forces it upon them.



CHAPTER IX

VOCATIONAL TRAINING FOR GIRLS

The discussions in the preceding chapters have been limited intentionally to a consideration of the needs and possibilities of training for wage-earning pursuits in which men predominate. The conditions which surround vocational training for girls are so fundamentally unlike those encountered in the vocational training of boys that a combined treatment leads to needless complexity and confusion.

Cleveland uses a relatively smaller amount of woman labor than most other large cities. In only one of the 10 largest cities in the country—Pittsburgh—is the proportion of women and girls at work smaller as compared with the total number of persons in gainful occupations than in Cleveland. In 1900, 20.4 per cent of the workers in the city were women; by 1910 the proportion of women workers had increased to 22 per cent, a shift of less than two per cent for the decade.

A consideration of the occupational future of boys and girls shows at once how widely their problems differ. The typical boy in Cleveland attends school until he reaches the age of 15 or 16. About this period he becomes a wage-earner and for the next 30 or 40 years devotes most of his time and energy to making a living. The typical girl leaves school about the same time, becomes a wage-earner for a few years, then marries and spends the rest of her life keeping house and rearing children. To the man wage-earning is the real business of life. To the woman it is a means for filling in the gap between school and marriage, a little journey into the world previous to settling down to her main job.

The most radical and important difference between the two sexes with respect to wage-earning is found in the length of the working life. The transitory character of the wage-earning phase in the life of most women is clearly seen in the contrasted age distribution shown in Table 13.

TABLE 13.—PER CENT OF TOTAL POPULATION ENGAGED IN GAINFUL OCCUPATIONS DURING THREE DIFFERENT AGE PERIODS

+ -+ + Age period Women Men + -+ + 16 to 21 60 85 21 to 45 26 98 45 and over 12 85 + -+ +

Approximately 85 per cent of the boys and slightly less than 60 per cent of the girls between the ages of 16 and 21 are at work. In the next age group—21 to 45—given by the census, 98 per cent of the men are at work, but the proportion of women employed in gainful occupations drops to 26 per cent, or about one in four; in the next age group—45 and over—it falls to about 12 per cent, as compared with 85 per cent of the men. Of the women still at work in the older age group, over one-half are engaged in domestic and personal service as servants, laundresses, housekeepers, etc.

TABLE 14.—NUMBER EMPLOYED IN THE PRINCIPAL WAGE-EARNING OCCUPATIONS AMONG EACH 1,000 WOMEN FROM 16 TO 21 YEARS OF AGE

Manufacturing and mechanical industries: Apprentices to dressmakers and milliners 4 Dressmakers and seamstresses (not in factory) 20 Milliners and millinery dealers 17 Semi-skilled operatives: Candy factories 6 Cigar and tobacco factories 15 Electrical supply factories 10 Knitting mills 11 Printing and publishing 8 Woolen and worsted mills: Weavers 5 Other occupations 7 Sewers and sewing machine operators (factory) 53 Tailoresses 25

Transportation: Telephone operators 19

Trade: Clerks in stores 28 Saleswomen (stores) 35

Professional service: Musicians and teachers of music 6 Teachers (school) 4

Domestic and personal service: Charwomen and cleaners 5 Laundry operatives 13 Servants 81 Waitresses 9

Clerical occupations: Bookkeepers, cashiers, and accountants 26 Clerks (except clerks in stores) 20 Stenographers and typewriters 62

The occupations in which the girls now in the public schools will later engage can be determined with a relative degree of accuracy by employing a method in general similar to that utilized in forecasting the occupations of boys. It must be taken into account, however, that the wage-earning period for women, except in the professional occupations, usually begins before the age of 21. For this reason the 16 to 21 age group probably offers the best basis for determining the future occupational distribution of girls in school. If all women at work up to the age of 25 were included the figures would be more nearly exact, but unfortunately data for the period between 21 and 25 are not available. The figures at the right of Table 14 show the number engaged in each specified occupation among each thousand women in the city between the ages of 16 and 21. The proportions given for the professional occupations, particularly teaching, are too small, because of the fact that few women enter the professions before the age of 21.

Applying these proportions to the average elementary school unit, it will be seen at once that the number of girls old enough to profit by special training is too small in any single occupation to form a class of workable size. In such a school there would be about 80 girls 12 years old and over. Of the skilled occupations listed in the table stenography and typewriting offers the largest field of employment, yet the number who are likely to take up this kind of work does not exceed five or six.

DIFFERENTIATION IN THE JUNIOR HIGH SCHOOL

The organization of the junior high school, where the enrollment is made up entirely of older pupils, obviates this difficulty to some extent. Instead of 80 girls there are from 300 to 500, with a corresponding increase in the number who will enter any given wage-earning occupation.

Not less than one-eighth and probably not more than one-fifth of these girls will become needleworkers of some kind. They will need a more practical and intensive training in the fundamentals of sewing than is now provided by the household arts course. The skill required in trade work cannot be obtained in the amount of time now devoted to this subject. It should be made possible for a girl who expects to make a living with her needle to elect a thoroughly practical course in sewing in which the aim is to prepare for wage earning rather than merely to teach the girl how to make and mend her own garments. As proficiency in trade sewing requires first of all ample opportunity for practice, provision should be made for extending the time now given to sewing for those girls who wish to become needle workers. This can easily be done through the system of electives now in use. The establishment of classes in power machine operating during the junior high school period appears to be impracticable, due to the immaturity of the girls and the small number who could profit by such instruction.

A discussion of the present sewing courses in the public schools will be found in Chapters XIV and XV, which summarize the special reports on the Garment Trades and Dressmaking and Millinery. In the present chapter the consideration of these occupations is limited to an examination of the administrative questions connected with training for the sewing trades.

SPECIALIZED TRAINING FOR THE SEWING TRADES

The compulsory attendance law requires all girls to attend school until they are 16 years old. This forces a considerable number into the high schools for one or two years before they go to work. As a rule the type of girl who is likely to enter the needle trades selects the technical high school course, not because she has any idea of finishing it, but because she believes it offers a less tiresome way of getting through her last one or two years in school than the academic course. The technical course requires three and three-quarter hours a week of sewing during the first two years. The student may elect trade dressmaking and millinery during the third and fourth years.

Very few girls who can afford to spend four years in high school ever become dressmakers or factory operatives. If the school system is to do anything of direct vocational value for them it will have to begin further down. Most of them leave school before the age of 17 and the years between 14 and 16 represent the last chance the school will have to give them any direct aid towards preparation for immediate wage-earning.

For successful work in machine operating the class must be large enough to warrant the purchase and operation of sufficient equipment to give the pupils an opportunity for intensive practice. The only way this condition can be secured is by concentrating in large groups the girls who need such training. Little will be accomplished in training for the sewing trades without specialization, and specialization in small administrative units is impossible. The teaching and operating cost in a school enrolling, say 200 girls, who want the same kind of work, can be brought within reasonable bounds. In a school where the total number who need specialized training does not exceed 10 or 15 the cost is prohibitive.

In the opinion of the Survey Staff a one or two year vocational course in the sewing trades should be established. The entrance age should not be less than 15. Courses should be provided for intensive work in trade dressmaking, power machine operating, and trade millinery. A conservative estimate of the number of girls who could be expected to enroll for courses in these subjects is 500. A trade school might be established where only this type of vocational training would be carried on, or it might be conducted in the same building with the trade courses for boys recommended in a previous chapter. In either case the number of pupils would be sufficient to warrant up-to-date equipment and a corps of specially trained teachers.

Training for the sewing trades consumes more material than any other kind of vocational training. For this reason economical administration requires some arrangement for marketing the product. During the latter part of the course the school should be able to turn out first-class work. The familiarity with trade standards the pupils obtain through practice on garments which must meet the exacting demands of the buying public has a distinct educational value. The Manhattan Trade School for Girls in New York City and other successful schools in the country operate on this basis. There is reason to believe that there would be little difficulty in making arrangements with the clothing manufacturers in Cleveland to furnish a good trade school as much contract work as the classes could handle.

OTHER OCCUPATIONS

From one-fourth to one-fifth of the girls in the school will later enter employment in commercial and clerical occupations, as stenographers, typists, clerks, cashiers, bookkeepers, saleswomen, and so on. Their needs will be considered in Chapters XII and XIII, in which the findings of the special reports on Boys and Girls in Commercial Work and Department Store Occupations are summarized.

A relatively small number will become semi-skilled operatives in industrial establishments, such as job printing houses, knitting mills, and factories making electrical supplies, metal products, and so on. As a rule such work requires only a small amount of manual skill or deftness. Not much training is needed and it can be given quickly and effectively in the factories.

About one-ninth of the girls in the school will enter paid domestic or personal service of some kind. The household arts courses probably meet the needs of girls who may be employed in such occupations as far as they can be met under present conditions. The woman domestic servant occupies about the same social level as the male common laborer, and a course which openly sets out to train girls to be servants is not likely to prosper. The load of social stigma such work carries is too heavy. At some time in the future it may be possible to ignore the traditional and universal attitude of our public toward the so-called menial occupations sufficiently to consider training servants. At present such a possibility seems remote.



CHAPTER X

VOCATIONAL GUIDANCE

Very few of the army of young people who become wage earners each year take up the occupations in which they engage as the result of any conscious selection of their own or of their parents. They drift into some job aimlessly and ignorantly, following the line of least resistance, driven or led by the accidents and exigencies of gaining a livelihood. They possess no accurate or comprehensive knowledge of the advantages and disadvantages of different types of wage earning occupations, and frequently take up work for which they are entirely unfitted or which holds little future beyond a bare livelihood.

THE WORK OF THE VOCATIONAL COUNSELOR

The plan now followed in the technical high schools of the city, by which one teacher in the school specially qualified for such work is charged with the duty of advising pupils who leave school and aiding them in securing desirable employment, could be adapted to the junior high school, where the need for service of this kind is even greater than in the technical high schools. Such work requires men who have had some contact with industrial conditions, and who possess sound judgment, common sense, and a fairly comprehensive knowledge of the local industries. If the curriculum embraces the course in "Industrial Information" suggested in a previous chapter, the teacher of this subject might well be designated as vocational counselor for the boys in the school. A course similar in nature should be provided for the girls and a woman teacher selected to advise them when they leave school. Considerable difficulty probably will be experienced in securing women teachers competent to assume this task, but any wide-awake teacher who will devote some attention to published studies of industrial conditions and get in touch with the local organizations engaged in the investigation of wage earning employments, such as the Consumers' League and the Girls' Vocation Bureau, can soon acquire a fund of information that will enable her to offer valuable suggestions and advice to girls who expect to become wage earners.

The vocational counselor must guard against conventional thinking and the mass of "inspirational" nonsense which forms the main contribution to the vocational guidance of youth provided in the average schoolroom. The ideals of success usually held up before school children seem to have been drawn from a mixture of Sunday school literature and the prospectuses of efficiency bureaus. Boiled down the rules prescribed for their attainment are two: first, "Be good;" and second, "Get ahead." The pupils are told about well-known men who became famous or rich, usually rich, by practicing these rules. Occasionally there is some prattle about the "dignity of labor," as a rule meaningless in the light of our current ideas of success. We do not think of a well-paid artisan as "successful." His success begins when he is promoted to office work, or becomes a foreman.

The inherent difficulty with ideals of success which demand that the worker become a boss of somebody else is that the world of industry needs only a relatively small number of bosses. Theoretically it is possible for any individual to reach the eminence of boss-ship. In real life less than one-tenth of the boys who enter industrial employment can rise above the level of the journeyman artisan, at least before later middle age, because only about that proportion of bosses are needed.

The task of the vocational counselor will consist in putting the pupil's feet on the first steps of the ladder rather than showing him rosy pictures of the top of it. For the great majority the top means no more than decent wages. This, after all, is a worthy ambition, frequently requiring the worker's best efforts for its realization.

THE GIRLS' VOCATION BUREAU

The Girls' Vocation Bureau, for the placement of girls and women in wage-earning employment, has been in operation about six years. At present it is under the general charge of the state and municipal employment bureau, although part of the funds for the support of the bureau is raised through private subscription. From July, 1914, to July, 1915, the Bureau secured positions for nearly 11,000 girls and women. Of these approximately 12 per cent were girls under 21. In many instances only temporary employment is secured, although efforts are made to place the girls in permanent positions. More girls are placed in office positions than in any other line of work, but a considerable proportion take employment in factories, domestic service, restaurants, and stores.

A careful record is kept of each applicant's qualifications, home conditions, the names of employers, etc. The Bureau endeavors to keep in touch with the girls after they are placed through follow-up reports and visits by members of the office staff or by volunteer investigators.

This spring every school in the city was visited by representatives of the Bureau in the endeavor to interest principals in the work of placement, and arrangements were made for sending to the Bureau lists of the girls who were expected to leave school permanently. This effort met with slight success, as only about 100 girls were reported from all the schools in the city, although the number of girls leaving school each year from the elementary grades alone is over 2,000. In all cases the girls were visited by a representative of the Bureau and urged to return to school, or if they were determined to seek employment the advantages of registering in the Bureau were brought to their attention.

It is to be hoped that more effective cooeperation between the Bureau and the schools can be established and that plans for a placement bureau for boys similar in method and aim to the Girls' Bureau may be realized. The matter of placement is the most difficult part of the vocational counselor's duties, and an arrangement whereby the vocational guidance departments of the various schools might serve as feeders to a central placement bureau would probably in the long run give the best results. Both guidance and placement are new things in the public schools and efficient methods of administration can be worked out only through trial and experiment.



CHAPTER XI

CONCLUSIONS AND RECOMMENDATIONS

1. The future occupations of the children in school will correspond very closely to those of the native-born adult population. The occupational distribution of the city's working population therefore constitutes the best guide as to the kinds of industrial training which can be undertaken profitably by the school system.

2. Industrial training in school has to do chiefly with preparation for work in the skilled trades. Training for semi-skilled occupations can be given more effectively and cheaply in the factories than in the schools.

3. As a rule, industrial training is not practicable in elementary schools, for the reason that the number of boys in the average elementary school who are likely to enter the skilled trades and who are also old enough to profit by industrial training is too small to permit the organization of classes.

4. The most important contribution to vocational education the elementary schools can make consists in getting the children through the course fast enough so that two or three years before the end of the compulsory attendance period they will enter an intermediate or vocational school where some kind of industrial training is possible.

5. The survey recommends the establishment of a general industrial course in the junior high school, made up chiefly of instruction in the applications of mathematics, drawing, physics, and chemistry to the commoner industrial processes. The course should also include the study of economic and working conditions in the principal industrial occupations.

6. One or two vocational schools equipped to offer specialized trade training for boys and girls between the ages of 14 and 17 are needed. At present a gap of from one to two years exists between the end of the compulsory attendance period and the entrance age in practically all the skilled trades, which could well be employed in direct preparation for trade work. Such schools would relieve the first and second year classes of the technical high schools of many pupils these schools do not want and cannot adequately provide for. General as well as special courses should be offered, although pupils should be encouraged to select a particular occupation and devote at least one year to intensive preparation for it.

7. The survey favors the extension of the compulsory attendance period for boys to the age of 16. The industries of Cleveland have little or nothing worth while to offer boys below this age.

8. The best form of trade-extension training is that provided in a few establishments which maintain apprentice schools in their plants. This plan is feasible only in large establishments. It will never take care of more than a small proportion of the young workers who need supplementary technical training.

9. Plans for trade-extension training of apprentices depending on the cooeperation of employers have met with slight success. The principle difficulty is that the sacrifices they involve are borne by a relatively small number of employers while the benefits are reaped by the industry in general. Either the industry as a whole or the community should bear the cost of such training.

10. The vocational interests of young workers and the social interests of the community demand the establishment of a system of continuation training for all young people in employment, up to the age of 18 years. The classes should be held during working hours and attendance should be compulsory.

11. The enrollment in the trade classes of the night schools is far below what it should be in a city as large as Cleveland. The relatively small result now obtained is not the fault of the schools, but is due mainly to the fact that the field of vocational evening instruction is treated by the school system as a mere side line of the technical high schools.

12. The survey recommends the organization of all forms of continuation, night vocational, and day vocational training under centralized full-time leadership. Only in this way can there be secured a type of organization and administration sufficiently elastic and adaptable to meet the widely varying needs of the working classes.

13. Industrial training for girls will consist in the main of preparation for the sewing trades. Practically no other industrial occupations in which large numbers of women are employed possess sufficient technical content to warrant the establishment of training courses in the schools. The survey recommends a practical course of needle instruction in the junior high school and the introduction in the vocational schools of specialized courses in dressmaking, power machine operating, and trade millinery for the older girls who wish to enter these trades.

14. The present experiment in vocational guidance and placement should be extended as rapidly as possible. Courses in vocational information should be offered in the junior high school and vocational counsellors appointed to advise pupils in the selection of their future vocations and aid them in securing desirable employment when they leave school. The full measure of success in this work demands better cooeperation with outside agencies on the part of teachers and principals than has been secured up to the present time.



CHAPTER XII

SUMMARY OF REPORT ON BOYS AND GIRLS IN COMMERCIAL WORK

Particular attention is given throughout this report to the differences which exist between boys and girls in commercial employment with respect to the conditions which govern success and advancement. The majority of boys begin as messengers or office boys and subsequently become clerks or do bookkeeping work. As men they remain in these latter positions or, in at least an equal number of cases, pass on into the productive or administrative end of business. The majority of girls are stenographers, or to a less extent, assistants in bookkeeping or clerical work. Boys' work may be expected to take on the characteristics of the business that employs them; girls' work remains in essentials unchanged even in totally changed surroundings. Boys' work within limits is progressive; girls' work in its general type—with individual exceptions—is static. Boys as a rule cannot stay at the same kind of work and advance; girls as a rule stay at the same kind of work whether or not they advance. Boys in any position are expected to be qualifying themselves for "the job ahead," but for girls that is not the case. Boys may expect to make a readjustment with every step in advancement. Each new position brings them to a new situation and into a new relation to the business. Girls receive salary advancement for increasingly responsible work, but any change in work is likely to be so gradual as to be almost imperceptible if they remain in the same place of employment. If they change to another place, those who are stenographers have a slight readjustment to make in getting accustomed to new terms and to the peculiarities of the new persons who dictate to them. Bookkeeping assistants may encounter different systems, but their part of the work will be so directed and planned that it cannot be said to necessitate difficult adaptation on their part. The work of clerical assistants is so simple and so nearly mechanical that the question of adjustment does not enter. These girl workers do not find that the change of position or firm brings them necessarily into a new relation to the business.

Even moderate success is denied to a boy if he has not adaptability and the capacity to grasp business ideas and methods; but a comparatively high degree of success could be attained by a girl who possessed neither of these qualifications. A boy, however, who has no specific training which he can apply directly and definitely at work would be far more likely to obtain a good opening and promotion than a girl without it would be.

The range of a boy's possible future occupations is as wide as the field of business. He cannot at first be trained specifically as a girl can be because he does not know what business will do with him or what he wants to do with business. The girl's choice is limited by custom. She can prepare herself definitely for stenography, bookkeeping, and machine operating and be sure that she is preparing for just the opportunity—and the whole opportunity—that business offers to her. Her very limitation of opportunity makes preliminary choice and training a definitely possible thing.



The difference between boys and girls begins at the beginning. Boys are given a larger share of the positions which the youngest worker can fill. Diagram 1 illustrates this and the figures of the United States Census for 1910 clearly corroborate it. Boys are taken for such work and taken younger than girls, not merely because the law permits them to go to work at an earlier age, but also because business itself intends to round their training. Girls, on the contrary, are expected to enter completely trained for definite positions. This fact alone would in most cases compel them to be older. Furthermore, because boys in first positions are looked upon as potential clerks, miscellaneous jobs about the office have for them a two-fold value. They give the employer a chance to weed out unpromising material; and they give boys an opportunity to find themselves and to gather ideas about the business and methods which they may be able to make use of in later adjustments.



Diagram 2 shows that girls' training, if it is to meet the present situation, must prepare for a future in specialized clerical work; boys' future must apparently be thought of as in mostly the clerical and administrative fields. The term "clerical" as here used, covers bookkeepers, cashiers and accountants, stenographers and typists, clerks and a miscellaneous group of younger workers such as messengers, office boys, etc. "Administrative" covers proprietors, officials, managers, supervisors, and agents, but it does not include salespeople.

The usual commercial course gives impartially to boys and girls two traditional "subjects" which they are to apply in wage earning whatever part of the wage earning field they may enter. These are stenography and bookkeeping. The evidence collected during the survey shows that these are rarely found in combination except in small offices. Of the men employed who are stenographers, the majority are of two kinds: (1) those who use stenography incidentally with their other and more important work as clerks, and (2) those for whom stenography is but a stepping-stone to another kind of position. The only firms which make a practice of offering ordinary stenographic positions for boys are those which restrict themselves to male employees for every kind of work.

Independent stenographic work of various kinds is of course open to the sexes alike. In Cleveland there are a few women in court stenography. The 10 public stenographers' offices were found upon inquiry to include two men and 10 women. No figures regarding convention reporters were obtainable. In the positions of the bookkeeping group also there was some sex difference. The accountants, bookkeepers, cashiers, pay-masters and other persons of responsibility are, in large offices where both sexes work together, much more likely to be men than women; the assistants who work with these may be of either sex, but girls and women are likely to make up the greater portion. Of the small office this is less generally true. Boys who do machine operating are usually clerks whose machine work, as in the case of stenography, is merely an adjunct to other work; with girls machine operating is either the whole of the position or the most important part of it.

The essential difference between the clerkship which boys for the most part hold and the general clerical work which girls do is that the boys' work is unified and is a definite, separate responsible part of the business, usually in line for promotion to some other clerkship; the girls' is a miscellany of more or less unrelated jobs and is not a preparation for specific promotion.

A GENERAL VIEW OF COMMERCIAL WORK

All commercial occupations may be roughly divided into two classes: those which have to do with administrative, merchandising, or productive work, and those which carry on the clerical routine which the others necessitate. The first class of occupations may be designated by the term "administrative work" and the second by "clerical work." A varying relation exists between the two which depends chiefly upon the kind of business represented. In some kinds clerical work is the stepping stone by which administrative work is reached; in others employment in clerical work side-tracks away from the administrative work.

There is, of course, a future of promotion within the limits of clerical work without reference to its relation to administrative work. The practical aspect of it is, in most kinds of business, that the subordinate clerical positions far outnumber the chief ones. Promotion of any sort depends largely upon individual capacity; but this general distinction may be made between promotion in clerical work and in administrative work; in the clerical field it tends to be automatic but limited; in administrative work it comes more often through a worker's initiative or individuality than through automatic progression and it has no arbitrary limits.

Obviously one kind of person will be adapted to an administrative career; another to a clerical one. Even a beginner in wage earning might be able to classify himself on a basis like this; yet it is not essential, for in many cases it is possible that his first positions recognize this choice. He needs fundamental experience in business methods whatever he is going to do; and for most administrative positions he needs maturity. He can achieve both by serving an apprenticeship in some form of clerical work. The important things for him in the early part of his career are to understand the distinction between the two classes of occupations; to sense the relation he holds to the business as a whole; and to act intelligently in the matter of making a change.

BOOKKEEPING

The bookkeeping which modern business, except in the small establishment, demands of young workers is certainly not the journal and ledger bookkeeping of the commercial schools. A modern office organization may have in its bookkeeping department of 20 persons only one "bookkeeper." This person is responsible for the system and he supervises the keeping of records and the preparation of statements. A minority of his assistants will need to be able to distinguish debits from credits; the rest will be occupied in making simple entries or in posting, in verifying and checking, or in finding totals with the aid of machines. The bookkeeping systems employed show wide variation, not only in different kinds of business, but in different establishments in the same kinds of business. Many firms are using a loose-leaf system; some use ledgers; and others have a system of record keeping which calls for neither of these devices. Bookkeeping work, especially in the positions held by girls, is frequently combined with comptometer or adding machine work, with typing, billing, filing, or statistical work; but rarely, except in the small office, are bookkeeping and stenography—the Siamese Twins of traditional and commercial training—found linked together.

STENOGRAPHY

Stenography is used throughout business chiefly in correspondence; to a less extent for report and statement work, for legal work, and for printer's copy. The stenographer in any business office, more than other clerical workers, is supposed to look after a variety of unorganized details including the use of office appliances, the filing of letters, and sometimes dealing with patrons or visitors in the absence of the employer. She is more important to the employer in his personal business relations than any other employee, except in the case of those few employers who have private secretaries.

CLERKS' POSITIONS

In the case of large corporations, which are by far the largest employers of clerks, this work has been standardized to a marked degree. The organization of the office work of the telegraph, telephone, and express companies, the railroads, and the occasional large wholesale company in Cleveland is a nearly exact duplication of that of other district or division offices controlled by these companies in other cities. The same is true of the Civil Service. Whatever effects standardization may have upon opportunity, it obviously makes for definiteness in regard to training requirements. All the positions are graded on the basis of experience and responsibility and a logical line of promotion from one to another has been worked out.

The report contains detailed studies of different kinds of clerical work in the offices of transportation and public utility corporations, retail and wholesale stores, manufacturing establishments, banks, the civil service, and small offices employing relatively few people. In each of these such matters as character of the work, opportunities for advancement, kind of training needed and special qualifications are taken up.

WAGES AND REGULARITY OF EMPLOYMENT

Stated briefly the conclusions of the report with respect to wages and regularity of employment in office positions are as follows:

The wage opportunities for clerical workers, especially men, lie in business positions outside the limits of clerical work. Men clerical workers average about the same pay as salesmen and more pay than industrial workers. Women clerical workers receive more than either saleswomen or industrial workers. Employment is much more regular in clerical work than it is in salesmanship or industrial work. For men clerical workers the wage opportunity is better in manufacturing and trade than in some kinds of transportation business. For women it is better in manufacturing and transportation than it is in trade. Men's wages tend to be higher than women's in all branches of clerical work.

Among the clerical positions, bookkeeping shows the highest wage average for men; clerks' positions show the lowest. Stenography shows the highest for women; machine work the lowest. Men bookkeepers show their best wage average in the wholesale business, clerks in transportation, and stenographers in manufacturing. The small office gives better wage opportunity to women bookkeepers and men stenographers; the large office favors women stenographers and men clerks.

For boys, there is some indication that advanced education and commercial training, in their present status, are less closely related to high wages than are personal qualities and experience. For girls, the combination of high school education and business training is the best preparation for wage advancement. A general high school education and usually, business training, are essential to the assurance of even a living wage. Business training based upon less than high school education is almost futile.

THE PROBLEM OF TRAINING

Six chapters of the report are devoted to a consideration of the needs and possibilities of training. The work now being done in the public schools of the city is discussed in detail, with suggestions for a better adaptation of the courses of study and methods and content of instruction to the needs of boys and girls who wish to prepare themselves to enter clerical occupations. The observations on training for such work may be summarized as follows:

Commercial training should be open to all students whom commercial subjects and methods can serve best; but graduation should depend upon a high standard of efficiency.

Statistics show that commercial training is not to be looked upon, in a wholesale way, as a successful means of taking care of backward academic students.

Commercial students' need for cultural and other supplementary education may be even greater than that of academic students.

The graduation rate of commercial students in public schools has been increased since the organization of a separate commercial high school and the number of students entering has been decreased.

Commercial high schools receive a grade of children who are about medium in scholarship and normal in age.

Commercial and academic high school teachers are similar in scholastic preparation and in the salaries they are paid.

The Cleveland Normal School does not prepare definitely for the teaching of commercial subjects. Commercial teachers are nominally supervised by the district superintendents.

Public schools receive 29 per cent of the city's day commercial students. The private schools receive a few more than the sum of public, parochial, and philanthropic schools.

Public schools receive 22 per cent of the city's night commercial students. The private schools receive more than twice as many as the public and philanthropic schools. There are no night commercial classes in parochial schools.

The length of the day course in most private schools is eight months or less; in public schools it is four years.

The public school, if it believes in longer preparation for commercial work than most private schools give, should demonstrate the reason to parents and children.

Training for boys and girls should be different in content and in emphasis.

The usual course of study in commercial schools is suitable for girls and unsuitable for boys.

A girl needs, chiefly, specific training in some one line of work. She has a choice among stenography, bookkeeping, and machine operating.

A boy needs, chiefly, general education putting emphasis on writing, figuring, and spelling; general information; and the development of certain qualities and standards.

For students electing to go into commercial work, general education may be taught more effectively through the medium of commercial subjects than through academic ones.

Boys' training looks forward to both clerical work and business administration; but as clerical work is a preparation for business and is likely to occupy the first few years of wage earning, training should aim especially to meet the needs of clerical positions.

Clerical positions for boys cover a variety of work which cannot be definitely anticipated and cannot therefore be specifically trained for. But certain fundamental needs are common to all.

Most of the specialized training for boys should be given in night continuation classes.

Girl stenographers need a full high school course for its educational value and for maturity. Girls going into other clerical positions can qualify with a year or two less of education; but immaturity in any case puts them at a disadvantage.

Boys' training, for those who cannot remain in school, should be compressed into fewer than four years. Immaturity in the case of boys is not a great disadvantage.

Bookkeeping has general value in the information it gives about business methods and for its drill in accuracy. To some extent it may aid in the development of reasoning.

Much of the bookkeeping in actual use in business consists in making entries of one kind only and in checking and verifying. Understanding of debit and credit, posting, and trial balance, is the maximum practical need of the younger workers.

Penmanship demands compactness, legibility, neatness, and ease in writing; also, the correct writing and placing of figures.

The chief demand of business in arithmetic is for fundamental operations—adding and multiplying—also for ability to make calculations and to verify results mentally.

Undergraduate experience in school or business offices may be a valuable method of acquainting students with office practice and routine and with business organization and business standards.



CHAPTER XIII

SUMMARY OF REPORT ON DEPARTMENT STORE OCCUPATIONS

The field covered in this volume is limited to the business of retail selling as carried on in the department stores and some other stores of Cleveland. The retail stores considered can all be assigned to one of the three following classes: (1) The department store of the first rank which draws trade not only from the whole city and the suburbs but also from the towns and smaller cities of a large surrounding district; (2) the neighborhood store which does a smaller business within narrower limits, drawing its trade, as the name indicates, from the immediate neighborhood; (3) the five and ten cent store, well known by syndicate names, where no merchandise which must be sold above 10 cents is carried.

DEPARTMENT STORES

The five largest department stores in Cleveland employ about 5,800 people distributed among several mercantile departments, and in a variety of occupations that find a place in the industry. Of these 5,800 people approximately seven-tenths are women and three-tenths are men; 90 per cent are over 18 years of age and 10 per cent are under 18.

The entire force of a store is sometimes arbitrarily divided by the management into "productive," and "non-productive" help. From 40 to 60 per cent of the employees were reported as actually taking in money, while the remainder, the "non-producers," were engaged in keeping the business going and making it possible for the "producers" to sell goods.

The greatest number of opportunities either for employment or promotion are in the selling force. This is often spoken as being "on the floor." Both boys and girls may find employment here, though a large majority of the sales force is made up of them. Speaking in general terms, men are only employed to sell men's furnishings, sporting goods, bulky merchandise, such as rugs, furniture, blankets, etc., and yard goods which are difficult to handle, such as household linens and dress goods. Positions as buyers and buyer's assistants are not restricted by sex and boys and girls may both consider them as a possible goal.

NEIGHBORHOOD STORES

A neighborhood store is that type of department store which draws its trade from a comparatively limited area of which the store is the center. The kind of goods carried are practically the same as in the large department store and the variety of merchandise may be nearly as great; but the selection is more limited because of the small stock.

Promotion to selling positions is more rapid in the neighborhood stores than in regular department stores. One reason for this is that a larger proportion of the force is "productive," i.e., selling. This proportion may run as high as 80 or even 90 per cent, as compared with the 40 to 60 per cent of "productive" help in large department stores.

Employment in these stores is looked upon as desirable preliminary training for service in larger department stores. This is the general opinion held by those who hire the employees in the larger stores. The selling experience gained in neighborhood stores is looked upon as general, in that it gives an acquaintance with a variety of merchandise rather than an extensive knowledge of any line of stock. This experience makes the employee adaptable and resourceful. Another advantage of neighborhood training for sales people is the fact that they are brought into closer human relations with the customer and thus learn the value of personality as a factor in making sales.

FIVE AND TEN CENT STORES

Cleveland had in the fall of 1915 six large stores where nothing costing over 10 cents is sold. These belong to three syndicates or chains. To show the extent to which this business has developed it may be stated that the largest of these syndicates, which controls three of the six Cleveland stores, has 747 branches in different parts of the country.

The number of saleswomen in a single store ranges from 12 to 70. The total number in the six stores was approximately 226. The shift in this branch of retail trade is large, as there are continual changes in the selling force. One store reported the number of new employees hired in six months as being about equal to the average selling force.

The managers of the five and ten cent stores without exception stated that they preferred to hire beginners who were without store experience. The hours of work are longer and the conditions under which the work is done are more trying than is usually the case in the larger department stores.

The girl who expects her application for employment in the five and ten cent store to be accepted must be 18 years old in order that she may legally work after six o'clock. It is better for her to be without previous selling experience (unless in other five and ten cent stores), as employers in these stores prefer to train help according to their own methods.

WAGES AND EMPLOYMENT

The wages paid beginners in the department stores are fair as compared with other industries employing the same grade of help. Boys and girls when they first enter employment receive from $3.50 to $7, depending on the store where they get their first job. In addition to the salary most department stores give bonuses or commissions through which the members of the sales force may increase their compensation. The Survey Staff worked out comparisons on the basis of data supplied by the State Industrial Commission between the earnings of workers in department store occupations and those in other industries. Diagram 3 shows graphically a comparison of the wages of women workers in six different industries. An interesting point brought out by this graphic comparison is that retail trade constitutes a much better field for women's employment as compared with the great majority of positions open to them in other lines than is commonly assumed to be the case. This is brought out even more clearly in Table 15, which compares, on a percentage basis, those who earn $12 a week and over, in all of the industries of the city employing as many as 500 women in 1914.



TABLE 15.—PER CENT OF WOMEN EMPLOYEES OVER 18 YEARS OF AGE EARNING $12 A WEEK AND OVER

Office employees, in retail and wholesale stores 31.8 Employees in women's clothing factories 22.5 Saleswomen in retail and wholesale stores 21.0 Employees in men's clothing factories 13.3 Employees in hosiery and knit goods factories 7.9 Employees in printing and publishing establishments 7.7 Employees in telephone and telegraph offices 6.3 Employees in laundries and dry cleaning establishments 4.4 Employees in cigar and tobacco factories 3.9 Employees in gas and electric fixtures concerns 3.2

If the data were for retail stores only and did not include wholesale stores, then office work, which now stands at the head of the list, would probably not make so good a showing, although the superiority over the selling positions is, from the wage-earning standpoint, so marked that there seems to be no escape from the conclusion that on the whole women office workers are better paid than women in the sales force. On the other hand the proportion of saleswomen earning $12 and over is from nearly seven times as great to not far from twice as great as it is in the factory industries, if we except the workers in women's clothing factories, whose earnings per week are better than those of the saleswomen.

With respect to the men employed on the sales force of the department stores a somewhat different situation exists. In Diagram 4 a comparison is made of the wages paid in sales positions with the wages paid in clerical positions. Here it will be noted that men who sell goods in retail and wholesale stores earn more on the average than men occupying clerical positions, such as bookkeepers, stenographers, and office clerks. This comparison does not include traveling salesmen. A further comparison of the earnings of the men in stores with the earnings of male workers (omitting office clerks) in the different industries of the city employing the largest number of men is given in Diagram 5, which shows the per cent in each industry earning $18 a week and over.



In comparing wages in stores with those in the manufacturing industries it must be not forgotten that the working day and week in the larger stores is shorter than in most of the factories. Hence a comparison of earnings on the basis of wage per hour would show a still greater advantage in favor of both sales persons and clerical workers.



REGULARITY OF EMPLOYMENT

In department store work and in nearly all branches of retail selling there is a marked fluctuation in the number employed during the year. Sales work in the department stores is seasonal in the sense that a large number of extra sales women are taken on during the Christmas season for a period of temporary employment, usually lasting from one to two months. The proportion of the total working force for the whole year employed in such transient jobs is approximately one-fourth. How selling positions in retail and wholesale stores compare with other fields of employment in this respect is seen in Diagram 6.



OPPORTUNITIES FOR ADVANCEMENT

In regard to promotion in department stores it should be noted that as a rule the executives are made in the business and are not, as in some industries, brought in from the outside because they must have some special training which the organization itself does not provide. Not only in Cleveland but in other cities where studies of the same kind have been made it has been found that practically all the people holding important floor positions have come up from the ranks. The various lines of promotion through the different departments are analyzed in detail in the report.

THE PROBLEM OF TRAINING

That vocational training for department store employees is both desirable and possible is proved by the fact that most of the large stores in Cleveland make some provision for the instruction of their workers. Some of these classes are carefully organized and excellently taught with every promise of increasing in usefulness. Others employ methods of instruction which belong to the academic school of an earlier decade and give evidence that the problem of vocational training with which they are presumably concerned is not even understood.

From the standpoint of the school there are two well recognized kinds of training possible for department store employees: trade preparatory and trade extension training. Eventually it may prove practicable to organize instruction of both kinds, but it is the opinion of the author of the report that under present conditions the surest results can be expected from trade extension training. In trade extension instruction the members of the group to be dealt with have already secured their foothold in the industry; and having mastered at least the rudiments of their job they have acquired a basis of experience which may be utilized for purposes of instruction. These people are responsive to teaching organized with regard to their needs, for daily experience is demonstrating to them their deficiencies.

The success of the proposed training will largely depend upon the employment of simple and direct methods that shall place this knowledge in the hands and head of the person or group needing it. The application of this instruction must be immediate and practical and must not be dependent upon the working out of a complicated course or schedule.

The organization must be flexible enough to admit of bringing together a group having a common need, although they may come from different departments of the business. Since the unit of class organization is not previous school experience or similar employment, it will be seen that this class should be held only until the need is fully supplied and should then give place to another organized on the same basis.

As in all vocational teaching, the size of the class should be limited. To make this work really effective, the instructor should come in sufficiently close contact with all pupils to enable him to obtain a personal knowledge of their needs and capabilities. A further necessity for small classes and individual instruction is found in the fact that there is a constant shift of employees in the industry as well as frequent accessions from the outside.

It readily can be seen that this is not a problem of the regular school and that it cannot be met by ordinary classroom methods. Part time or continuation classes, such as have already proved feasible for other kinds of trade instruction, are the most practicable methods of doing this work.

Classes for the instruction of employees are already maintained in the majority of large stores. The extension of this plan of separate responsibility is one way of meeting the problem. But this method has certain obvious faults. The unequal opportunity which it affords to department store employees as a body is a conspicuous drawback. The value of the instruction so given, moreover, will always depend to a large extent on the comprehension of the problem by the firm maintaining the classes. The method involves much duplication of effort, which is particularly wasteful when the instruction of small groups is involved.

Another possible method would be for the several department stores to get together and cooeperate in providing instruction. There would seem to be no reason why stores should not unite for this purpose as well as for any other. The advantages of this method are economy of maintenance and administration, the ability to command expert service, and the possibility of securing and sharing the results of a great variety of such experiences as does not consist of exclusive trade secrets.

The number of people whom it would be necessary to employ exclusively for the purpose of conducting these classes would be small as compared with the results accomplished. Collectively these stores now have in their employ a body of highly paid experts in all lines of merchandise. A large amount of the most accurate technical knowledge covering the work of all departments is already available in the several stores. These are valuable resources which should be utilized by a cooeperative school of this kind.

For the head of such a school, it would be desirable to secure a man or woman of more than usual ability and discernment who, above all else, could sense the business and routine of each contributing store from the standpoint of the employee and of store organization. It would be the business of this person to become familiar with the available sources of knowledge in the different stores and then arrange for the presentation of this knowledge to the various classes. By cooeperation with the floor men, heads of sections and departments, as well as with the employees themselves, he should come into close contact with the requirements of the workers and should gather from the different stores those who, because of their common need, can be made into a "school unit." It would also be necessary to employ assistants of practical experience who would attend to the details of routine teaching, and act as interpreters for those experts who have the knowledge but not the ability to impart it even to a small class.

It is realized that a scheme of this kind would involve the overcoming of many objections and difficulties of adjustment before it could be put into actual operation. It would necessitate mutual concessions and forbearance on the part of everybody concerned, but the results would unquestionably justify the labor.

A third method, already in operation in Boston, New York, and Buffalo, calls for the cooeperation of the stores and the schools. This partnership, it is claimed, makes certain that the needs of the pupil are considered before the demands of the business. It insures equal opportunity for all employees so far as instruction is concerned and it divides the expense of maintenance between the industry and the school. It is to be regretted that this scheme frequently results in the employment of teachers who, although certificated for regular school work, have no other qualifications, instead of persons of practical experience. The employment of such teachers too often leads to the following of ordinary school practices and academic traditions rather than the methods and practice of business.

In some quarters it is maintained that this instruction should be entirely taken over by the public schools, thus relieving the store of any responsibility in the matter. It is probably not now advisable for the school to assume full responsibility for such training. The heavy expense involved and the physical limitations of the schools would make it difficult, without the cooeperation of the store, to reproduce the trade atmosphere necessary for real vocational training. As a result, the instruction would become abstract and theoretical, with the major portion of the effort limited to a continuation of elementary school subjects taught with reference to their application to department store work.

CHARACTER OF THE INSTRUCTION

The analysis of the industry shows that in each occupation or job there is a definite amount of knowledge which must be acquired by the efficient worker. A study of this analysis and of the examples of technical knowledge needed by the worker at different points in the industry will show that no such thing as a general course is possible. In every case the character of the instruction should be such that it will answer a definite need of the employee. What this instruction should be in specific cases can be settled only, on the one hand, by a thorough analysis of the occupation to determine what demands it makes upon the workers, and on the other, by a careful study of the workers themselves to ascertain how far they have been unable to meet these demands without assistance. Lessons can then be organized dealing with such subject matter as individuals or groups have failed to grasp, the lack of which limits their efficiency or restricts their usefulness. It can readily be seen that this instruction will cover a wide range of subjects, from the use of fractions needed by checkers and salesgirls in yard goods sections, to the special technical knowledge of fine furs required by the salesperson who handles this merchandise.

The method by which this instruction can best be given is in a series of short unit courses. In every case the length of the course is to be determined by the subject matter. For instance, two one-half hour lessons may be a "course," when this time is sufficient for the necessary teaching.

The group or class to which this instruction is given might be made up of those who need the same technical knowledge, although they might expect to make a different application of this instruction. For instance, the unit course on silks might be given to a group composed of salespeople from the silk section, the waists and gowns section, and the section of men's neckwear.

The report gives detailed examples of the kinds of technical knowledge needed in the different departments of the store. It maintains that such instruction cannot be successfully given by regular school teachers. As in other industries the teacher needs actual experience in the occupation for which training is given. Academic training and teaching experience are desirable and valuable, but among the qualifications demanded of a teacher of this kind they are of secondary importance.

The final chapter of the report contains valuable instructions for young persons who desire to secure positions in retail trade. These instructions cover such matters as work papers, methods of securing a position, and requirements for employment in various kinds of department store work.



CHAPTER XIV

SUMMARY OF REPORT ON THE GARMENT TRADES

The clothing industry in Cleveland has grown very rapidly in recent years. During the 10 year period from 1900-10 the number of persons employed in the industry increased approximately 100 per cent. This increase was much greater than the increase throughout the country as a whole and was more than twice as large as the increase in the population of the city. There is every indication that this rapid growth is still continuing. It is estimated that approximately 10,000 workers are employed in the industry at the present time.

The distribution of men and women in the industry is most interesting. The making of men's garments has been more fully standardized and is subject to fewer changes than the making of women's garments. In this standardized and systematized branch of the industry the women now outnumber the men. In the manufacture of women's garments, where the styles change more frequently and the work is of a more varied character, more men than women are employed.

The methods of work are of three general types: The old tailoring system known as "team work," or a slight modification of it; piece operating; and section work. Under the team system, used extensively in the making of women's coats, a head tailor hires his own helpers (operators and finishers), supervises them and pays them by the week out of the lump sum he receives for the garments from the clothing establishment. Under the piece operating system each operator sews up all the seams on one "piece," or garment, and each finisher does all the hand sewing on one garment. Each operator and each finisher is an independent worker. The whole body of finishers keeps pace with the whole body of operators. Piece operating is used almost entirely in dress and skirt making, and to some extent in coat making. The section system is based on the subdivision of processes into a number of minor operations. The workers are divided into groups, each group making a certain part of the garment. The various operations are divided into as many minor operations as the number of workers and quantity and kind of materials will warrant. Each of these minor operations is performed by operators who do nothing else. This specialization has been carried to a high degree in the manufacture of men's clothing, and section work is increasingly used on women's coats.

CHARACTERISTICS OF THE WORKING FORCE

One of the objects of the study was to find how many positions there are for men and women in each occupation in the industry. Through the cooeperation of employers data were obtained from the records of 50 establishments employing a total of 8,337 garment workers, approximately four-fifths of the total number in the city. The distribution of workers by sex in the various occupations is shown in Diagram 7. The apportioning of work to the two sexes seems to depend partly upon the weight of materials and partly upon previous training. The men are mostly foreign born tailors who have had the kind of training necessary for the more complicated work. The women are largely American born of foreign parentage, trained in American shops and employed chiefly upon operations that may be learned in a relatively short time. Cutting and pressing are practically monopolized by men. Nearly all hand sewers are women, except for a few basters on men's clothing. Most designers are men, although a few women designers are found in dress and waist shops.

In the largest trade,—machine operating,—about two-thirds of the workers are women. In no trade in which both sexes are employed is the difference in their work more apparent. The weight of materials decides to some extent the division of operating between men and women. Some employers are of the opinion that garments made of such thick materials as plush, corduroys, and cheviots are too heavy to be manipulated under needle machinery by women and consequently employ only men operators. Where light weight materials are used, as in the manufacture of dresses and waists, delicacy in handling is required, and nearly all the operators are women.



Four-fifths of the men and two-fifths of the women employed in the industry are of foreign birth and the majority of the native born workers are of foreign parentage. There is an increasing demand for workers who understand English, due to the fact that they are able to follow directions more intelligently.

There are relatively few workers under the age of 18. Many firms will employ no one under this age because of various complications which arise in connection with the age and schooling certification of girls between the ages of 16 and 18. Of 25 women's clothing factories visited during the Survey only nine had any workers under 18. According to the report of the Industrial Commission of Ohio for 1914 only eight per cent of the workers employed in making men's clothing, and less than two per cent of the workers employed in making women's clothing were under 18 years of age.

EARNINGS

In general the wages paid in garment making compare favorably with those of other manufacturing industries. This is particularly true with respect to the earnings of women workers. A considerably larger proportion of the women employed in the garment industry earn what may be considered high wages for industrial workers than in any of the larger factory industries of the city. This is clearly shown in Diagram 8 which lists nine of the principal fields of industrial employment for women. The proportions of women receiving under $8 a week are lower in men's and women's clothing than in the other seven industries. In the proportion of women receiving $12 and over, women's clothing ranks first and men's clothing third.