8. The local school authority should administer the local program with authority to go beyond the minimum State standards.

9. The determination of who is eligible for special services is a local responsibility upon the basis of minimum State standards. The diagnosis upon which the selection is based should be performed by the

proper personnel-for example, physical diagnosis by the medical profession; a complete educational diagnosis and recommendations for treatment by the school personnel, such as, the teacher, the phychologist, a guidance person, and other appropriate personnel. (This suggestion does not envision the exclusion of the other specialized diagnostic services available through local and State agencies for severe cases.) (Policy 6, previously adopted, "Developing an Adequate Educational Program": "6. Provision should be made for utilizing the services and facilities of all related agencies which should properly render services auxiliary to education.")

V. Organization and Administration of a State Program for Exceptional Children

sighted children; etc., should be made available.

D. State residential schools.-Such schools, except for those children who should be enrolled therein for their own proper guidance or for the protection of themselves and society, should gradually be displaced by programs of education which do not require institutionalization. This policy is based on consideration of the following principles:

1. No child should be deprived of his opportunity to live with his own parents if his home is at least reasonably desirable.

2. Though public day schools cannot in all cases be located where all children may reside at home every day, it is possible to provide centers geographically located so that the child may live in foster homes during the school week and be at home week ends and holidays.

3. Day school plan is feasible because an adequate educational program is possible and the cost is reasonable.

ceptional Children

A. Adequate financial provision should be made to provide exceptional comparable to those provided nonchildren with educational opportunities exceptional children.

A. Selection and training of teachers for exceptional children.- (See policy on "Teacher Education II-E," adopted by the National Council of Chief State School Officers at its Buffalo meeting in 1946.)

B. Selection of children for services. The selection of children should be on the basis of physical disability, mental deviation, and emotional disturbances, or a combination of these characteristics which indicate a need for adaptation of an educational program or in some respects a fundamentally different program.

C. Provisions of buildings, equipment, and instructional materials.Special desks with orthopedic attachment if necessary for the physical comfort and health of pupils; group hearing aids for acoustically handicapped children; large type books for partially

B. State aid formulas should recognize necessary costs involved in providing equal educational opportunities for exceptional children.

C. Local school units should be required to provide such educational services as are needed by exceptional children and as are comparable with the opportunities afforded nonexceptional children.

D. The State department of education should be provided with funds so that in cooperation with local school units it can include a continuous program of consultation, evaluation, and experimentation.

(Policy 3 H under "Financing the Educational Program During and Following the War Emergency Period," February 1946: "H. The State board of education or other appropriate State educational agency should have limited funds and authority to make grants to local school units for the purpose of establishing new programs on an experimental or emergency basis.")

Committee members and consultants attending Washington or St. Louis conferences

Project Committee

John S. Haitema, chairman Jane Stoddard, consultant Elise H. Martens, consultant (See page 11 for membership of Planning Committee.)

GUIDANCE

I. School authorities in each State should establish a unified program of guidance services designed to serve the interests of individuals and of society in relation to the general and specialized aspects of the total educational program in the schools of the State at the elementary, secondary, and adult school levels.

The classification and separation procedures in the armed forces, the readjustment of returning veterans, and the reconversion of the national economy from a wartime to a peacetime basis have resulted in the creation of many and often conflicting types of guidance services. An illustration of the need for a more unified program may be found in the guidance services established by veterans' agencies which affect the decisions of veterans relative to the completion of their secondary schooling without adequate information concerning policies and programs established by the secondary schools.

II. State school authorities should take advantage of the financial assist ance from Federal funds to further develop a State program of guidance without unnecessary duplication of services or conflict in points of view.

Recent legislation in the form of the GeorgeBarden Act makes State supervision of guid ance, counselor training, research, and a certain amount of local reimbursement for counselors possible under policies now being de veloped by the U. S. Office of Education.

III. The scope of the guidance program should include individual counsel ing, fact finding basic to school program adjustments, and leadership in supervising and training all school personnel performing guidance services.

Individual counseling with respect to edu cational and vocational planning and other types of planning should enable the indi vidual to make decisions with respect to problems involving economic, social, vocational. emotional, moral, and other factors affecting his personal adjustment.

The guidance program serves to furnish data concerning individuals, occupational oppor tunities and requirements, and other factors basic to school program adjustments necessary

for the welfare of the individual and of society. Leadership in supervision and training should coordinate the efforts of classroom teachers and all other school personnel performing guidance services as an integral part of a well-rounded guidance program. IV. The State school authorities should determine the minimum qualifications for guidance personnel.

In addition to those personal traits that make for success in guidance work, specialized training, successful classroom teaching experience, and work experience other than teaching are desirable for guidance specialists.

Since some aspects of guidance services are an essential part of their duties, all school personnel-administrative, supervisory, specialist, or classroom-should receive guidance training as an integral part of their professional training.

V. The State school authorities should recognize the need for providing adequate guidance services for all the schools of the State.

Where the basic administration unit is too small to permit the provision of an adequate guidance program, the organization of larger administrative units, the cooperative efforts of small units, or other measures should be employed to provide such a program.

Committee members and consultants attending Washington or St. Louis conferences

Project Committee

Warren W. Knox, chairman

D. A. Emerson

Harry A. Jager, consultant (See page 11 for membership of Planning Committee.)

VETERANS' EDUCATION

Introduction

The education of veterans presents a new and unique problem. Most educational problems have a life span of upwards of 50 years or more, yet here is a problem that should soon attain its peak and begin to merge into the general problem of education. However, the problem has all of the complication of a national emergency problem including a very definite educational aspect.

Statesmen and educators are obligated to put forth great and honest efforts because of the promise for the future which these veterans carry. The problem deals with the welfare of

Volume 29, Number 6

millions of young adults who are selected individuals in the positive sense. They are, generally speaking, emotionally stable, healthy, literate, intelligent, and, most important of all, eager to learn.

In spite of repeated forewarnings, the programs for veterans' education are not satisfactory. Most public educational institutions are on the way to a good program. The private trade school situation is in a deplorable state. The on-the-job training program is inadequate, and is in a state of disorder and constant change.

The problem is so pressing that adequate and well-defined policies should be agreed upon at once by all control agencies involved. Instructional policies and programs should be developed at the local, State, and institutional levels. Lastly, approved policies should be widely disseminated and carried out.

Educators should take advantage of opportunities to interest veterans in public education, to eliminate undesirable traditions in education, to evaluate new learning methods, and to utilize the impetus of veterans' education to develop further upper secondary and adult programs. Basic Information

In the consideration of this problem at least the following three questions must be faced and answered:

1. What State agencies have been assigned responsibilities for veterans' education in all areas, and how do such agencies discharge these responsibili

ties?

In the hearings on S. 1617, The Servicemen's Readjustment Act of 1944,

before the subcommittee of the Committee on Finance of the U. S. Senate, Seventy-eighth Congress, Second Session, a desirable pattern for administrative responsibilities for the education of veterans was advocated by leading educators. These leaders of education recommended that the ad

ministration of veterans' education follow the desirable and effective plan of joint responsibility of the U. S. Office of Education and the State departments of education.

This recommendation was not made a part of P. L. 346, nor has it been followed in its administration. Instead

the Veterans' Administration wrote to the Governors of all States, requesting that they designate approving agencies for institutional and on-the-job training for veterans. As a result there is a wide variety of approving agencies among the several States. While as a rule the agency designated to approve institutional training is charged also with approval of on-the-job training, in some States one State agency approves institutional training, another on-thejob training, and a third apprentice training. Some of the many approving agencies within a State are the State Board of Education, the Department of Labor, the Agency for Veterans' Affairs, a special committee for approval, the State Apprentice Council, and the State Veterans' Administration. In the States in which such a variety of approving agencies exists, there is inevitably a loss in administrative efficiency. Such a loss would be obviated if the successful experiences of many years in the cooperative administration of educational enterprises through the U. S. Office of Education, the State departments of education, and local school boards were followed.

In the majority of the States, the State departments of education have been designated as the approving agency for college and secondary education. Their successful administrative experience in approval on these levels has facilitated the execution of the responsibility of approving colleges and secondary schools for veterans' education. In approval on these levels the State departments of education have been most effective.

In the fields of approval for on-thejob training and specialized training in institutions, the State departments have been much less effective largely due to lack of funds with which to secure adequate personnel to inspect and supervise these types of training.

While a few States have been able to allot some funds for this work, most States have not had available funds sufficient to employ an adequate number of supervisors to execute effectively the responsibilities necessarily connected with the approval of on-the-job training and specialized training in institutions.

2. What is the nature of the program of administration, leadership, and in

9

struction of: (a) The Veterans' Administration; (b) the U. S. Office of Education; (c) other Federal agencies; and (d) nongovernmental agencies?

A careful review of the laws providing for the education of veterans and a study of the discussions which developed in connection with the hearings on these bills and amendments show quite conclusively that it was the intention of Congress to place all matters relating to veterans in the hands of the Veterans' Administration insofar as the

individual veteran is concerned. It appears to have been the desire of Con

gress to have one organization, namely,

the Veterans' Administration, to which the veteran could turn for aid in the solution of any of his problems.

This

On the other hand, it was generally agreed that the Veterans' Administration should not attempt to supervise the work done in the educational institutions or to act as the approving agency for educational establishments. phase of the program was left in the hands of the State and local educational authorities, agencies, or boards. Considerable confusion arises, however, when an attempt is made to draw a line between the supervision of the institution and the supervision of the individual who attends the institution.

Further complications arise when the individual veteran chooses, in lieu of attending a regularly accredited educational institution, to enroll in some newly established educational institution or to take on-the-job training in some industrial establishment which has not previously been approved to carry on an educational program. Such situations necessitate a tremendous expansion of the duties and responsibilities of the State educational agencies for the approval and supervision of these organizations.

No funds are provided for the State educational agencies to perform these expanded services except as authorized in Public Law 679, 79th Congress,

which reads as follows:

Any such appropriation shall also be available for use by the Administrator in reimbursing State and local agencies for reasonable expenses incurred by them in (1) rendering necessary services in ascertaining the qualifications of industrial establishments for furnishing on-the-job training to veterans under the provisions of Part VIII of such regulation, and in the supervision of industrial

Veterans' Administration. If the Veterans' Administration has a policy for reimbursing for supervision at the State level, such policy has not been clearly defined or announced and certainly is not uniformly understood or interpreted in the various States. The Veterans' Administration, from the central office, has declined to recognize and approve the function of coordination as an educational service in on-the-job training, although it has been an accepted practice in education for a number of years.

It may be said that under the present policy the administration of the education of veterans rests entirely with the Veterans' Administration, with the exception of such administrative and supervisory services which the Administrator requests from other State and local agencies and for which services he may reimburse the State or local agency in accord with policies which he determines. The U. S. Office of Education is bypassed entirely both in the wording of the law and in the administration of it. This Office can therefore serve in an advisory capacity only at the discretion of the Veterans' Administrator, even though vital education policies at the national level involved.

are

Other Federal agencies affect this program both directly and indirectly. For example, the Retraining and Reemployment Administration of the U. S. Department of Labor serves as a coordinating agency for all existing executive agencies (except the Veterans' Administration) authorized by law relating to retraining, reemployment, vocational education, and vocational rehabilitation. Other divisions of the

3. What are the various relationships existing between Federal agencies, State agencies, and extra-legal agencies? The experience of State officials in handling affairs dealing with veterans'

education on a national level with the various Federal agencies listed under 2 above tends to substantiate the fact that too often Federal agencies work at cross purposes and with unnecessary overlapping and duplication. Directives are issued and revoked before they can be put into full effect. This procedure is extremely confusing, demoralizing, and destructive to regional and State offices of the Federal agencies, as well

as to State and local educational agencies.

The extra-legal agencies on the national, State, and local levels have influenced the patterns of veterans' education more than is generally recog nized. They are effective lobbying agents when our legislative bodies are in session and their influence is farreaching in shaping the total educational program. Naturally, there are many instances in which these agencies are in disagreement. Even as a small minority group, one of these agencies can be extremely potent in promulgating a selfish program. There is a great need for guidance from our professional leaders to direct the efforts of these organizations into the proper channels. The fundamental need, however, is for these programs to be properly organized and channeled through regularly constituted Federal, State, and local educational agencies.

Recommended Policies

I. The U. S. Office of Education should properly be made responsible for advisory, planning, and consultative services for educational aspects of the veterans' program, and to this end funds should be allocated to this Office by the Veterans' Administration.

II. The administration of programs of financial and material aid to States and communities should be done in terms of plans acceptable to the U. S. Office of Education and to the regularly constituted educational agencies of the several States.

III. An agreement should be made among the Apprentice Training Service of the U. S. Department of Labor, the U.S. Office of Education, and the Veterans' Administration as to what are apprenticeable occupations, and such agreement should be forwarded to the States for their guidance.

IV. All educational aspects of the veterans' program in a State should be coordinated by the State department of education.

V. Financial aid for the education and training of veterans should go to the regularly constituted State educational agencies.

VI. Local administrative school units maintaining secondary schools (including locally controlled public junior colleges) should extend their programs to provide for the veterans in their larger community areas.

VII. The local school administrative unit should coordinate all educational programs it should provide in its service

THE LAUNCHING OF UNESCO

by George J. Kabat, Acting Chief, European Educational Relations Section, International Educational Relations Division'

The United Nations Educational, and functions of the Organization Scientific, and Cultural Organization reads as follows: is now officially recognized as the world's international educational organization. It has but one aim: The promotion of world peace through education, science, and culture. The First General Conference of UNESCO met in Paris late in 1946 to launch officially this new attempt at world peace through understanding.

Oneness of Aim

When the Conference opened, more than 20 nations had accepted and signed the UNESCO charter. At the close of the Conference 4 weeks later, 30 nations, all members of the United Nations, had completed the formalities

necessary to become full members. The of the Conference were to purposes take UNESCO out of its temporary status, to make it a permanent and functional organization, and to adopt a program of action by which UNESCO would carry on its assigned task, namely, world peace through education, science, and culture. This oneness of aim is repeated for emphasis and because it did not seem clear to many participating in the Conference. In fact, there was considerable difference of opinion on the point as evidenced by the following statement from the earlier writings of UNESCO's Director General: "UNESCO-the United Nations Educational, Scientific and Cultural Organization-is by its title committed to two sets of aims. In the first place, it is international and must serve the ends and objects of the United Nations, which in the long perspective are world ends, ends for humanity as a whole. And secondly, it must foster and promote all aspects of education, science and culture, in the widest sense of these words." 2

Purposes and Functions

Article I of the Constitution of UNESCO dealing with the purposes

1. The purpose of the Organization is to contribute to peace and security by promoting collaboration among the nations through education, science, and culture in order to further universal respect for justice, for the rule of law and for the human rights and fundamental freedoms which are affirmed for the peoples of the world, without distinction of race, sex, language or religion, by the Charter of the United Nations.

When the delegates assembled in Paris for the First General Conference of UNESCO, they had three main tasks to perform. First, the delegates were charged with adopting for UNESCO a program both immediate and long range. Second, they had to adopt a budget which their governments would support. And, third, they were faced with the task of selecting a Director General who would guide UNESCO's activities and who would use UNESCO for the purpose for which it was intended.

The Program

The UNESCO Preparatory Commission, since its formation over a year ago, had been planning ways and means by which it could best carry out the aim of UNESCO. It had been decided that world peace could best be promoted by use of education, mass communication, libraries, and museums, the natural sciences, the human sciences, and the creative arts. In the light of the program proposed by the Preparatory Commission, the delegates were assigned by the chairmen of their national delegations to the various sub

commissions and committees whose purpose was to study the proposed program and make revisions as they saw fit, keeping in mind the wishes of their respective national delegations and

commissions.

1 Mr. Kabat serves as liaison officer between the U. S. Office of Education and UNESCO. He was Technical Advisor to U. S. Delegation, First General Conference of UNESCO, Paris, 1946; U. S. Delegate, Ninth International Conference on Public Education, Geneva, Switzerland, March 1946.

2 Huxley, Julian S. UNESCO, Its Purpose and Philosophy. Part I UNESCO/C/6 (mimeograph) Paris, Sept. 30, 1946, p. 1.