Wage earning and education

Foreword

This summary volume, entitled "Wage Earning and Education/' is one of the 25 sections of the report of the Education Survey of Cleveland conducted by the Survey Committee of the Cleveland Foundation in 1915 and 1916. Copies of all the publications may be obtained from the Cleveland Foundation. They may also be obtained from the Division of Education of the Russell Sage Foundation, New York City. A complete list will be found in the back of this volume, together with prices.

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Table Of Contents

PAGE

Foreword 5

List of Tables 10

Chapter I The Industrial Education Survey

The education survey of Cleveland was undertaken in April, 1915, at the invitation of the Cleveland Board of Education and the Survey Committee of the Cleveland Foundation, and continued until June, 1916. As a part of the work detailed studies were made of the leading industries of the city for the purpose of determining what measures should be taken by the public school system to prepare young people for wage-earning occupations and to provide supplementary trade instruction for those already in employment. The studies also dealt with all forms of vocational education conducted at that time under public school auspices.

Types of Occupations Studied

Separate studies were made of the metal industry, building and construction, printing and publishing, railroad and street transportation, clothing manufacture, department store work, and clerical occupations. The wage-earners in these fields of employment constitute nearly 60 per cent of the total number of persons engaged in gainful occupations and include 95 per cent of the skilled workmen in the city. The survey also gave considerable attention to the various types of semi-skilled work found in the principal industries.

Each separate study was assigned to a particular member of the Survey Staff who personally carried on the field investigations and later submitted a report to the director of the survey. Each report was also subjected to careful analysis and criticism from other members of the Survey Staff before it was finally passed upon by the Survey Committee. Mimeographed copies were sent to representatives of the industry and to the superintendent of schools and members of the school board and their criticisms and suggestions were given careful consideration before the Committee and the director of the survey gave their final approval to the publication of the report. The value of the work was greatly enhanced through the ample discussion of the different studies from widely diverse points of view secured in this way. The industrial studies were carried through under the direction of the author of this summary volume.

The Survey Staff and Methods of Work The reports of the studies relating to vocational education were published in a series of eight separate monograph volumes. The names of the reports and the previous experience in educational and investigational work of each member of the Survey Staff are as follows :

"Boys and Girls in Commercial Work" — Bertha M. Stevens; teacher in elementary and secondary schools; agent of Associated Charities; secretary of Consumers ' League of Ohio; director of Girls' Bureau of Cleveland; author of "Women's Work in Cleveland " ; co-author of " Commercial Work and Training for Girls."

"Department Store Occupations" — Iris P. O'Leary; head of manual training department, First Pennsylvania Normal School; head of vocational work for girls and women, New Bedford Industrial School; head of girls' department, Boardman Apprentice Shops, New Haven, Conn.; special investigator of department stores for New York State Factory Investigating Commission; three years' trade experience as employer and employe; author of books on household arts and department stores; Special Assistant for Vocational Education, State Department of Public Instruction, New Jersey.

"The Garment Trades" and "Dressmaking and Millinery" — Edna Bryner; teacher in grades, high school, and state normal college; eugenic research worker New Jersey State Hospital; statistical expert in United States Bureau of Labor Investigation of women and child labor; statistical agent United States Post Office Department; Special Agent Russell Sage Foundation.

" The Building Trades," and " The Printing Trades " — Frank L. Shaw; teacher in grades and high school; principal of high school; assistant superintendent of schools; superintendent of schools; special agent

United States Immigration Commission; special agent United States Census; industrial secretary North American Civic League for Immigrants; author of reports on immigration legislation.

"The Metal Trades" — R. R. Lutz; teacher in rural and graded schools; superintendent of schools; secretary of Department of Education of Porto Rico; took part in school surveys of Greenwich, Conn., Bridgeport, Conn., Springfield, 111., Richmond, Va.; Special Agent Division of Education, Russell Sage Foundation.

"Railroad and Street Transportation" — Ralph D. Fleming; special agent and investigator for United States Immigration Commission, the Federal Census of Manufacturers, the United States Tariff Board, the Minimum Wage Commission of Massachusetts, the National Civic Federation, and the United States Commission on Industrial Relations.

The work began in April, 1915, and ended in the same month of the following year. Two members of the staff, with one stenographer and a clerk, were employed during the entire period. One member of the staff was employed 11 months, one nine months, one approximately five months, and one two months.

The field investigations consisted largely of visits to industrial establishments for the purpose of securing first-hand information as to industrial conditions and the nature and educational content of particular occupations. Over 400 visits of this kind were made by members of the Survey Staff. Many conferences were held with employers and employees with the object of securing their views as to the needs and possibilities of industrial training.

The task of tabulating and classifying the data obtained by the individual investigators in their visits to the local industrial establishments involved much time and labor. Although it was not found practicable to maintain complete uniformity in the different inquiries, the members of the staff kept in close touch with each other, so that with respect to the points of principal importance, the results of their investigations are comparable. Practically every recommendation made in the reports was discussed in conferences with school principals and with other members of the teaching force engaged in the teaching of vocational subjects.

Throughout the survey the objective held constantly in mind was the formulation of a constructive program of vocational training in the public schools. In outlining the field of inquiry a clear distinction was drawn between those kinds of general education which have a more or less indirect vocational significance, and vocational training for specific occupations in which the controlling purpose is direct preparation for wage-earning. The studies were purposely limited to this latter type of vocational training. The survey did not concern itself with manual training conducted for general educational ends, with the art work of the schools, or with courses in domestic science and household arts. These subjects in the curriculum were dealt with in different sections of the education survey, but were considered as being outside the legitimate field of the vocational

survey.

2 17

Chapter II Forecasting Future Probabilities

The industrial education survey of Cleveland differs from other studies conducted elsewhere in that it bases its educational program on a careful study of the probable future occupational distribution of the young people now in school. It does not claim to foretell the specific positions that individual boys and girls will hold when they are adults but it does claim very definitely that our safest guide in foretelling their future vocational distribution is to be found in the official figures of the present occupational census of the city.

One of the most familiar and time-worn platitudes of educational speakers and writers is that "The children of today are the citizens of tomorrow.' ' In the field of industrial education it is quite as true that the school children of today are the workers of tomorrow. Moreover, since occupational distributions change but slowly even in these modern times, it is unquestionably true that the boys and girls now studying in the public schools will soon be scattered among the different gainful occupations of Cleveland's industrial, commercial, and professional life in just about the same proportions as their fathers and mothers and brothers and sisters are now distributed.

The plan of the survey in advocating types of present preparation based on studies of future prospects seems at first sight so obvious a mode of procedure as hardly to warrant extended explanation. This is far from being the case. The reader who proposes to follow the working-out of the principle and to scrutinize the evidence underlying it must be prepared to scan many a detailed table of statistics and to arrive at most unforeseen conclusions.

The Popular Concept of Industrial Education

For many years past the public has given respectful attention to the arguments of the champions of industrial education. There has been general assent to the proposition that the schools should train for and not away from the industrial age in which we live. We have come to think of the carpenter shop, the machine shop, the forge shop, and the cooking room as necessary and desirable adjuncts of the modern school and to our minds these shops have typified industrial education. All of these have come to be almost synonymous with progressive thought and action in public education. Very generally it has been felt that the problems of industrial education were to be solved through the wider extension of these shop facilities in our public schools. When these familiar generalizations are submitted to careful analysis their whole structure begins to totter. In Cleveland about 3,700 boys leave school each year and go to work. They represent various stages of advancement from the 4th grade of the elementary school to the 4th year of the high school. They are scattered through more than 100 school buildings. The problem of industrial education is to give these boys with their differing ages, their widely varied school preparation, and their scattered geographical distribution, the best possible preparation for taking their places in the work-a-day world. They represent every grade of intelligence, every stratum of social and economic life, and it is extremely difficult to bring them together for instructional purposes. They are scattered in little groups through more than a thousand classrooms.

The Importance of Relative Numbers

Now it is possible to foretell with some certainty what these young people will be doing a few years from now. Almost all of them are of American birth and it is certain that in a few years they will be engaged in doing just about the same sorts of work as are now done in the city of Cleveland by adults of American birth. The data of the United States Census of Occupations show us that among every 100 American born men in Cleveland there are eight who are clerks, seven who are machinists, four who are salesmen, and so on through the list of hundreds of occupations. The number of American born men in each 100 engaged in each of the 10 leading sorts of occupations is approximately as follows :

Clerks 8

Salesmen 4

' Laborers and porters 4

Retail dealers 4

Draymen, teamsters, etc 4

Bookkeepers 3

Commercial travelers 2

Manufacturers 2

This simple list at once calls into question all the standard assumptions about the extension of industrial education depending on greatly increasing the number of carpenter shops and machine shops in the public schools. The figures show that among each 100 American born men in Cleveland only seven are machinists and only three are carpenters, j Clearly we should not be justified in training all the boys in our public schools to enter the machinist's trade or the carpenter's trade when nine out of each 10 will in all probability engage in entirely different sorts of future work. The more the figures of the little table given above are studied, the clearer it appears that our conventional ideas about industrial education need critical scrutiny and careful challenge. These 10 leading occupations include only 41 out of each 100 American born men. Moreover, more than half of these 41 are engaged in mental work rather than in manual work.

From these considerations one definite conclusion inevitably emerges. It is that the safest guide for thinking and planning for industrial education is to be found in a study of the occupational distribution of the present adults. From the very outset such a study indicates that the most difficult and important problems which must be met and coped with are not those relating to methods of instruction but rather those of organization and administration. The future carpenters and machinists cannot be taught until we can get them together in fair sized classes. They represent the most numerous of the industrial groups and yet their numbers are relatively so few that the average Cleveland school sends out into the world each year only two or three future machinists and perhaps one future carpenter.

The trouble with present thinking about this matter has been that we have noted the very large numbers of machinists and carpenters in the population and have failed to realize that while these groups are numerous in the aggregate they are after all quite small when relatively considered and compared with the total number of workers.

Another important fact that has been almost invariably overlooked is that many of the present carpenters and machinists are foreigners by birth and that there is every prospect that this same condition will maintain in the future. Hence these trades and most other industrial occupations are not recruited from our public schools to anything like the degree

that has been assumed.

A Constructive Program Must Fit the Facts The simple principle which underlies the method employed by the survey is the same on which all large business undertakings are conducted. The results of its application in the field of industrial education are, however, fundamentally different from those commonly arrived at on the assumption that nine-tenths of the rising generation will earn their living in industrial pursuits. The fact is that no such proportion of the children in school will become industrial workers. All the native born labor now employed in manufacturing and mechanical industries constitutes only 44 per cent of the total number of native born workers in the city. Moreover, nearly half of the industrial workers are employed in unskilled and semi-skilled occupations for which no training is required beyond a few days' or weeks' practice on the job. Such training calls for a mechanical equipment far more extensive than the resources of the school system can provide, and can be given by the factory more effectively and much more cheaply than by the schools.

In the final analysis, the problem of industrial training narrows down to the skilled industrial trades. Approximately 22 per cent of the total number of American workers in the city are employed in skilled manual occupations. This does not mean that a constructive program of industrial education would affect 22 per cent of the present school enrollment. All the weight of educational opinion and experience is on the side of excluding the children of the lower and middle age groups as too young to profit by any sort of industrial training, while the evidence collected by the survey goes to show that of the remainder less than one-fifth of the girls and one-fourth of the boys are likely to become skilled industrial workers.

An Actuarial Basis for Industrial Education

Considerations like the foregoing have determined the fundamental method of the Cleveland Industrial Survey. Plans for the present generation have been formulated on the basis of future prospects as foretold by state and federal census data. The methods used were characterized by a member of the Cleveland Foundation Survey Committee as "the actuarial basis of vocational education." This is accurately descriptive, because the method of forecasting the number of men the community will need for each wage-earning occupation closely resembles that employed by life insurance actuaries in foretelling how long men of different ages are likely to live. Such methods are similar to those commonly used in commerce and industry. They deal with mass data rather than with individual figures, and with relative values rather than with absolute ones.

Chapter III The Wage Earners Of Cleveland

In 1910 Cleveland ranked sixth among the cities of the United States as to number of inhabitants, with a population of approximately 561,000. The city is growing rapidly. From 1900 to 1910 the increase in the total number of inhabitants was over 46 per cent. The Census Bureau estimate of the population in 1914 is approximately 639,000.

Of the 10 largest cities in the country only one — Detroit — had in 1910 a greater proportion of its wage earners engaged in industrial employment than Cleveland. Relatively Cleveland has one and one-fourth times as many industrial workers as New York, Chicago, St. Louis, or Baltimore, and one and two-fifths times as many as Boston. On the other hand a smaller proportion of the adult workers of the city earn their living in professional, clerical, and commercial work, or in domestic and personal service employments than in most large cities.

Table 1 shows by large occupational groups the distribution in 1910 of the working population in Cleveland. The classification is that adopted by the federal census. More than 56 per cent of the male workers of the city and about 33 per cent of the women workers were engaged in manufacturing and mechanical occupations. The trade group ranks next, about 14 per cent of the men and approximately 11 per cent of the women being engaged in commercial occupations. Of each 100 women in employment 30 are servants, laundresses, housekeepers, or are engaged in some other form of personal service, while only five men of each 100 earn their living in this kind of work. Railroad and street transportation, with the telegraph and telephone and mail systems of communication, requires the services of 11 per cent of the male working population, but uses very few women. About seven per cent of the men and 15 per cent of the women are employed in clerical work. A slightly larger ratio of women to men is found in the professional occupations, due mainly to the large number of women in the teaching profession. The whole professional group constitutes less than five per cent of the total working population.

TABLE 1.— OCCUPATIONAL DISTRIBUTION OF THE WORKING POPULATION OF CLEVELAND, CENSUS OF OCCUPATIONS, 1910

Occupational group

Men

Manufacturing and mechanical industries

Trade

Domestic and personal service

Transportation

Professional service

Public service

109,644

27,229

9,546

21,530

14,047

7,204

3,461

1,367

18,201

5,942

16,467

1,110

8,100

4,869

194,078

54,808

248,886

From the standpoint of vocational training one of the most striking facts about Cleveland wage-earners is that a large majority of them are not Clevelanders. Almost exactly half of the men in gainful employment were born outside the United States and, due to the rapid growth of the city, there has been a considerable influx of workers from the surrounding country in recent years, so that a large proportion even of the American working population was born, brought up, and educated in some other place. The number and per cent of foreign born, of foreign or mixed parentage but born in this country, and of native parentage is shown in Table 2.

TABLE 2.— NATIVITY OF THE WORKING POPULATION IN CLEVELAND. U. S. CENSUS, 1910

Nativity-

Men

Number

Per cent

Number

Per cent

Foreign born

Foreign or mixed parentage

Native parentage

96,291 55,074 42,713

28 22

16,673 24,275 13,860

31 44 25

194,078

54,808

More than three-fourths are foreign or of foreign or mixed parentage. The proportion of those born in this country of American parentage is approximately the same for both sexes, but the number of women workers of mixed parentage is relatively much larger than among the men. Roughly, of each 10 men employed in gainful occupations, five, and of each 10 working women, three, were born abroad.

The large proportion of foreigners in the trades has an important bearing on the problem of vocational training. Some of the skilled occupations are monopolized by foreign labor to such an extent that they offer a very limited field of employment for native workmen. Cabinet making, tailoring, molding, blacksmithing, baking, and shoe making, are examples. Some of these trades have practically ceased to recruit from American labor. This condition has to be constantly borne in mind in planning training courses to prepare boys for the skilled trades, because of the marked disparity which often exists between the size of a trade and the field of opportunity it presents for boys of native birth.

Chapter IV The Future Wage-earners Of Cleveland

In 1915 there were in Cleveland approximately 50,000 boys between the ages of six and 15, and 56,000 girls between the ages of six and 16, the age period during which school attendance is required by law. Of these 106,000 children approximately 37,000 boys and 38,000 girls were enrolled in the public schools. Exact data as to those attending private and parochial schools are not available. The total enrollment in such schools has been variously estimated as between 25,000 and 30,000.

The Public Schools

The public school system in 1915 enrolled approximately 82,000 children of all ages, of whom about half were boys and half girls. They are taught in 98 elementary schools and 10 high schools. The elementary course comprises eight grades. At the beginning of the school year 1915-16 two junior high schools were opened for pupils of the seventh and eighth grades. It is to be expected that this plan will soon be extended throughout the city, so that the enrollment in elementary schools will be made up of pupils of the first six grades only. The distribution by grade is given in Table 3. The kindergarten grades and the special ungraded classes are omitted.

TABLE 3.— PUPILS ENROLLED IN THE DIFFERENT GRADES OF THE PUBLIC DAY SCHOOLS IN JUNE, 1915

Grade

Pupils

13,108

10,857

10,562

9,323

8,902

7,259

6,429

4,903

I

3,122

IV 1,399

About 77 per cent of the children are enrolled in the grades below the seventh, about 13 per cent in the seventh and eighth grades, a little over six per cent in the first two years of the high school, and less than three and one-half per cent in the third and fourth.

There are eight academic high schools, two technical high schools, and two commercial high schools. The technical high schools are steadily growing in favor. The registration of boys in these schools increased about 33 per cent from 1913 to 1915, and of girls about 77 per cent. During the same period the registration of boys in the academic high schools decreased slightly, while the increase of girl students was only eight per cent; in the commercial high schools the number of girl students increased 20 per cent, while the enrollment of boys fell off more than 10 per cent. The enrollment by individual schools is shown in Table 4.

TABLE 4.— ENROLLMENT OF HIGH SCHOOL PUPILS, SECOND

SEMESTER, 1914-15

Schools

Enrollment

Boys

Girls

Academic high schools Central East Glenville West Lincoln South

804 607 405 246 277 213

711 688 611 377 329 238

1,515

1,295

1,016

2,552

2,954

5,506

Technical high schools East Technical West Technical

1,161 515

548 242

1,709 757

1,676

2,466

Commercial high schools West Commercial East Commercial

249 49

528 96

777 145

All high schools

4,526

4,368

8,894

About three-eighths of the high school pupils of the city are in the technical and commercial schools. Of the boys 56 per cent are enrolled in the academic high schools, 37 per cent in the technical schools, and seven per cent in the commercial schools. Of the girls 68 per cent attend the academic high schools, 18 per cent the technical schools, and 14 per cent the commercial schools. In the commercial high school approximately two-thirds of the enrollment is made up of girls. In the technical high schools the opposite condition prevails, the girls constituting less than one-third of the total enrollment, while in the academic high schools the girls outnumber the boys by nearly one-sixth.

Ages of Pupils

The distribution as to ages is shown in Table 5. The largest group is made up of children seven years old. Between 14 and 15 over 30 per cent leave school. The loss from 16 to 17 is approximately 43 per cent, from 17 to 18 about 44 per cent, and from 18 to 19 nearly 62 per cent.

The compulsory attendance law requires boys to attend school until they are 15 and girls until they are 16. That the law is not adequately enforced is demonstrated by the heavy loss between the ages of 14 and 15, and the fact that the loss between 15 and 16 is approximately the same for both boys and girls, although girls are required to attend one year longer than boys. Additional evidence as to the laxity in the enforcement of the compulsory law is found in the results of an inquiry conducted by the Consumers, League of Cleveland in the spring of 1916, in cooperation with the survey.

TABLE 5.— AGES OF PUPILS ENROLLED IN PUBLIC ELEMEN- MENTARY, HIGH, AND NORMAL SCHOOLS IN JUNE, 1915

Age

Boys

Girls

4,255

4,180

8,435

5,012

4,815

9,827

4,496

4,407

8,903

4,268

4,103

8,371

4,093

3,951

8,044

3,747

3,593

7,340

3,700

3,646

7,346

3,676

3,631

7,307

3,445

3,271

6,716

2,358

2,291

4,649

1,190

1,163

2,353

1,352

Over 20

••

41,491

40,319

81,810

An attempt was made to follow up the cases of all the children who had left one public elementary school during the period of one year preceding the study. The work was done by the case method and the homes of the children were visited. The total number of cases studied was 117, of whom 89 were girls. It was found that one-third of these children had graduated and gone on to high school. Another third had gone to work, and of these, 40 per cent had done so without graduating. The children constituting the remaining third were staying at home, and among these a majority had dropped out without graduating.

Of the eighth grade graduates one-half were found 3 33 to be illegally employed, as they were less than 16 years of age. Among those who dropped out and went to work before completing the course 80 per cent were illegally employed.

The fact that many girls drop out without graduating and before the end of the legal attendance period and remain at home indicates that most of them do not leave on account of financial necessity. This conclusion is substantiated by the testimony of the girls and their parents, many of whom say that the girls left simply because they grew tired of attending and did not see the value of remaining.

These facts point to the necessity for much more effective work in enforcing the compulsory attendance laws, for far better inspection of shops and factories to detect violations of the child labor laws, and above all to such a reform of the schooling opportunities provided for older girls as will make them and their parents see the value of securing the advantages of the training provided.

Education at the Time of Leaving School

About 3,700 boys and an approximately equal number of girls drop out of the public schools each year. Most of the boys and a considerable number of the girls enter wage-earning at once. Their educational equipment at the time of leaving school is indicated in Table 6.

TABLE 6.— EDUCATIONAL EQUIPMENT OF THE CHILDREN

WHO DROP OUT OF THE PUBLIC SCHOOLS EACH YEAR, AS

INDICATED BY THE GRADES FROM WHICH THEY LEAVE

Grade

Number leaving

I

II

III

IV

Slightly less than one-fifth finish the high school course. Nearly three-fifths drop out before entering the high school, and approximately three-eighths before reaching the eighth grade.

Under the present compulsory attendance law a boy who enters school at the age of six and afterwards advances at the rate of one grade per year until the end of the compulsory attendance period should cover nine grades — eight in the elementary school and one in high school — by the time he is 15 years old. In actual fact, however, only about two-fifths get any high school training. Nearly all of the rest take the eight to nine years' attendance required by law to complete eight, seven, six, or even a smaller number of grades.

It is from this body of pupils that most of the wage-earners are recruited. In the course of the surveyseveral investigations were made for the purpose of finding out what educational preparation workers in various industries had received. One of the most extensive of these was conducted in connection with the study of the printing industry. Educationally the printing trades rank higher than most other factory occupations, yet the average journeyman printer possesses less than a complete elementary education. Composing-room employees, such as compositors, linotypers, stonemen, proof-readers, etc., undoubtedly stand at the head of the skilled trades as to educational training, but it was found that only eight per cent were high school graduates. Six per cent had left school before reaching the seventh grade, and 16 per cent before reaching the eighth grade. The other departments of the printing industry made a much less favorable showing.

An investigation conducted by the Survey in the spring of 1915, covering 5,000 young people at work under 21 years of age, indicated that only about 13 per cent of these young workers had received any high school training and that less than four per cent had completed a high school course. Over one-fifth reported the sixth grade as the last completed before leaving school, and nearly half had dropped out before completing the elementary course. Less than seven per cent of the boys engaged in industrial pursuits had received any high school training and only 42 per cent had got beyond the seventh grade. The educational preparation of the boys engaged in commercial and clerical occupations was somewhat better, nearly 22 per cent having attended high school one year or more; about one-half had left school after completing the eighth grade and nearly one-third had not completed the elementary course.