With all the restrictions which have been placed around the expenditure of Federal funds as safeguards, the autonomy of the States has been entirely preserved by the following provisions:

1. The Federal Government deals with the work in the States only through an official State board created by the legislative machinery of the State.

2. The Federal Government deals with the State only in terms of standards and policies and not in terms of particular institutions or individuals. This means standards and policies rather than personalities.

3. The Federal Government deals with a State in terms of the conditions within that particular State and not in terms of the United States as a whole. This is possible through the provisions of the act which provide for standards but do not specify such standards in terms of equipment, courses of study, or other uniform requirements for the country at large. This cooperation of the Federal Government with the States in the promotion of vocational education is based upon four fundamental ideas:

(1) That vocational education being essential to the national welfare, it is a function of the National Government to stimulate the States to undertake this new and needed form of service.

(2) That Federal funds are necessary in order to equalize the burden of carrying on the work among the States.

(3) That since the Federal Government is vitally interested in the success of vocational education, it should, so to speak, purchase a degree of participation in this work.

(4) That only by creating such a relationship between the Federal and the State Governments can proper standards of educational efficiency be set up.

GENERAL PROVISIONS OF THE ACT.

Certain general provisions which may be regarded in a sense as restrictions apply to all the States and are in the nature of broad general policies affecting a Nation-wide system of education rather than the particular details of the schools or classes within a State. These general principles furnish a large part of the fundamental policy underlying the administration of the act and are as follows:

1. All schools receiving Federal aid must be under public supervision or control. This means that privately conducted institutions over which the public does not have control must be supported by other than Federal funds. The Federal funds are public funds, and as such must be controlled by the public, the control within the State being through the State authorities, and the State authorities in turn being answerable to the Federal Government. This is an application of the well-recognized principle that where a dollar of public money goes there must also go public supervision to see that the public money is expended for the purpose and to the end for which it was appropriated.

2. The controlling purpose of this education must be to fit for useful employment. The appropriations under the vocational education act are made for a specific purpose, namely, the promotion of vocational education. It is fair to assume that vocational education has as its controlling purpose to fit for useful employment. This safeguard prevents the use of Federal funds for any part of general education, even though that particular part may partake of the

nature and methods of instruction usually characterizing vocational education. To determine the controlling purpose several factors have to be considered— (a) The amount of time given to the instruction specifically related to the vocation.

(b) The character of the instruction in so far as it is related to the field of production for which the pupils are being prepared.

(c) The ability of the teachers as measured in terms of the vocation which they are teaching.

(d) The plant and equipment as measured by conditions in the field of production for which particular field the pupils are being prepared. (e) The number of pupils entering the field of production for which they are prepared.

(f) The efficiency of these people after entering the field.

(g) The estimates placed upon the instruction by those already recognized as master workers in the field for which the pupils are being prepared. 3. The instruction in these schools must be of less than college grade.-As has already been noted, the Federal Government through other acts has made ample provision for the support of agricultural instruction of college grade. The vocational education act aims primarily to develop a system of vocational instruction for the adolescent youth of the country. This instruction is of less than college grade. With a provision to this effect it is impossible to use vocational education funds for the payment of salaries of teachers giving instruction supported from funds specifically designed for institutions of college grade. In other words, land-grant colleges may not use money from such sources as the Morrill fund and the Nelson fund, and from the agricultural fund under the vocational education act, to support the same class or classes.

With these safeguards, the fact that a class is maintained at least in part by Federal moneys granted to institutions as of college grade defines that institution as of college grade and therefore the instruction in it as of college grade. The only way in which a land-grant college may use Federal moneys under the vocational education act for the salaries of teachers is by making a separate organization of vocational classes of less than college grade.

4. The instruction in these schools must be designed to meet the needs of persons over 14 years of age who have entered upon or who are preparing to enter upon a vocation.-This provision is based upon the assumption that , until a pupil has reached the age of 14 he is unable to determine what vocation he intends to follow. Furthermore, it is assumed that pupils below the age of 14 are not mature enough physically or mentally to profit from instruction of a vocational character. It is well recognized in the United States that the instruction of pupils under the age of 14 is properly of a general rather than a special character. Any instruction of a vocational nature is usually termed prevocational, and is more in the form of giving experience as a basis of intelligent choice of vocation than actual preparation for the vocation itself. In other words, the instruction contemplated by the vocational education act is for persons who have developed physically and mentally to an extent which will enable them to profit from instruction directed toward a vocation and which at the same time is of less than college grade.

5. Every dollar of Federal funds must be matched by a dollar of State or local funds, or both.-It is quite evident that this country is at the present time committed to the policy of giving State or Federal aid fo an enterprise carried on in a community only upon condition that the enterprise shall also be sup

ported in part by moneys representing some sacrifice on the part of the community itself. The principles here involved are as follows:

(a) An individual or a community values most highly and cherishes most carefully the thing in which it has made an investment.

(b) If an individual or a community really desires a thing enough, it will be willing to support financially the thing desired.

(c) Federal or State aid is for the purpose of assisting a community and not making it a gift.

In other words, this provision of the law is carrying out to its logical conclusion the requirement that schools receiving Federal aid must be under public supervision or control, since this requirement adds that they must also be publicly supported.

6. Reimbursement from the fund for salaries of teachers will be made to schools only for salaries of those qualified under the standards set up in the State plan and approved by the Federal Board.-The essential of this requirement is that the money shall be expended only for the salaries of those who are to do the teaching or supervising. It is a well-recognized principle in education that the success of an educational enterprise depends more upon the teacher than upon any other single factor. While great stress is put upon proper plant and equipment, it is still necessary to recognize that there was a great deal of truth in what President Garfield said:

"Give me a log hut, with only a simple bench, Mark Hopkins on one end and I on the other, and you may have all the buildings, apparatus, and libraries without him."

Incidentally it is to be noted that when a fund is used solely for salaries of teachers, it is much easier to see that the money is properly spent than it would be if the fund might be used for other forms of maintenance, especially where many institutions in a State are to be considered.

NEW RELATIONSHIPS WITH THE STATES.

The relationship of the Federal Government to the States, as provided in the vocational education act, differs in a number of particulars from the relationship provided in the Morrill Act, the Nelson Act, the Hatch Act, and the Smith-Lever Act. In these four latter acts provision is made for the Federal Government to deal with a single institution in each State, with a few exceptions where two institutions were to be dealt with. It was necessary, therefore, in most States to deal with a single board of control for one institution and to expend the money in the affairs of one institution only.

The vocational education act, appropriating money for the support of vocational education of secondary grade in agriculture, home economics, and industry, must needs deal with many institutions of many different kinds located in many different places-teacher-training institutions, institutions training adults in evening school, parttime schools, day schools, schools located in rural communities, and institutions located in crowded cities. It was not possible for the Federal Government to deal with each one of these institutions directly, both because of the difficulty of the problem and because, traditionally, the elementary and secondary schools of the State are

operated by the State itself. Any attempt on the part of the Federal Government to deal with them would be an interference with the autonomy of the State in the management of its own affairs. It became necessary, therefore, to establish, through the vocational education act, one State board of control for the administration of the Federal funds within each commonwealth.

The establishment of a State board of control as a trustee of Federal moneys by the vocational education act makes it necessary that all schools, institutions, and classes within the State using the Federal money should deal not with the Federal Board for Vocational Education but with the State board charged with the duty and responsibility of expending these Federal funds in conformity with the act and a plan submitted by the State board and approved by the Federal Board.

Under the plan of administration set up by the act the Federal Board has no dealings directly with any institution inside the State. It does not say that a scheme of teacher training shall be carried on by this, that, or the other institution; it does not say that vocational instruction shall be given by this, that, or the other school; it can not say this, but it does pass upon the scheme for teacher training proposed by the State covering all such things as entrance requirements, length of course, content of course, method of instruction, and graduation requirements. It does pass upon the plan of vocational education proposed for the schools of a State, including plant and equipment, minimum for maintenance, course of study, and qualifications of teachers. When this plan has been approved it becomes the duty and responsibility of a State to select some institution or institutions inside the State to give the teacher training in conformity with the plan. It also becomes the duty and responsibility of the State board for vocational education to pass upon the question of whether or not certain schools have met the requirements of the act and the standards set up in the plan, and it is the duty of the Federal Board to see that the State board does carry out its plan of teacher training properly in the institution which has been selected and to see that the institution approved by the State board is in conformance with the plan proposed by the State.

The Federal Board must inspect the work of classes, schools, and institutions, but not as schools, classes, or institutions. It inspects the work as the work of the State board being carried on by such classes, schools, or institutions. Should the State board fail to do this it becomes the duty of the Federal Board to withold the allotments of Federal money for the ensuing fiscal year. The State board, therefore, takes the responsibility upon its shoulders of not only selecting and approving the schools in which work is to be carried on but of seeing that these schools do carry on properly the work which they

have undertaken to do with the expectation of receiving reimbursement from Federal funds.

The Federal Board, therefore, is not concerned with controversies within a State as to what institutions or schools are chosen by the State board for carrying on the work. This matter rests entirely in the hands of the State board. The Federal Board is concerned only with the question of whether or not the State board is subletting the contract of vocational education and training vocational teachers as the work done according to the plan which it proposed and which the Federal Board approved.

At the same time it is the duty of both the State and the Federal Boards to see that the Federal moneys are used in the most effective way possible and for the purposes set forth in the act.

AGENCIES OF ADMINISTRATION.

The machinery established by the vocational education act is devised to secure effective cooperation in promoting vocational education. The law provides for the appointment by the President of a representative Federal Board for Vocational Education. The members of this Board are the Secretary of Agriculture, the Secretary of Commerce, the Secretary of Labor, and the Commissioner of Education, together with three citizens who represent, respectively, the labor, the manufacturing and commercial, and the agricultural interests of the Nation.

On July 17, 1917, the Senate confirmed the following appointments by the President: Arthur E. Holder, a representative of labor, for three years; Charles E. Greathouse, a representative of the agricultural interests, for two years; and James P. Munroe, a representative of the manufacturing and commercial interests, for one year.

On July 21 the Board met and organized, electing David F. Houston, Secretary of Agriculture, as chairman; James P. Munroe, vice chairman; and P. P. Claxton, temporary secretary.

For purposes of administration and inspection under the vocational education act the Federal Board has divided the country into five sections or regions. In defining these regions the States are grouped as follows:

I. North Atlantic.-Maine, New Hampshire, New Jersey, Vermont, Massachusetts, Connecticut, Rhode Island, New York, Pennsylvania, Delaware, and Maryland. Headquarters in New York City.

II. Southern.-Virginia, North Carolina, South Carolina, Georgia, Florida, Tennessee, Mississippi, Alabama, Arkansas, Louisiana, and Texas. Headquarters in Atlanta, Ga.