has come to be widely used by local employment offices, other Government agencies (including the Army and Navy), and many private employers. The dictionary defines approximately 30,000 job titles, covering 17,452 distinct jobs. It is continuously supplemented as additional industries are covered. A new section, recently added, provides a classification system for inexperienced workers based on aptitudes, interests, and training.

Other occupational analysis devices developed by the Employment Service point up the specific requirements of jobs and show relationships between jobs. These devices are extremely helpful in guiding the transfer of workers. Examples are the document entitled "Special Aids for Placing Navy Personnel in Civilian Jobs" and the comparable document for Army personnel. Both of these were developed in cooperation with the Army and Navy for use by Employment Service personnel in finding the best jobs for returned veterans, and by the Army and Navy personnel responsible for counseling the men at the time of discharge. Studies of this same type are now being prepared to show the peacetime jobs that war workers can perform on the basis of their experience in war plants.

Special attention also is being given to an analysis of job requirements in relation to physical handicaps.

The various occupational analysis techniques have been of value in enabling the Employment Service to assist war employers in obtaining maximum use of workers. These can be of value in the transition period, both of military demobilization and for the transfer of war workers to new peacetime jobs.

Aiding in the job of training and retraining.

The Employment Service does not operate training programs. Its function in the training and retraining field is to supply the occupational and labor market information needed for the planning and administration of programs operated by training agencies.

In the months and years ahead, the Employment Service System must expect to continue this function. In addition, it must also perform the equally essential function of supplying information on available training to veterans and displaced war workers, helping them to determine the kind of training they need, and referring them to specific training courses.

Providing special services to veterans.

Ever since its organization in 1933, the United States Employment Service has maintained a special service for veterans. Each local employment office has a veterans' employment representative. A veterans' employment representative is attached to each State office to assure that effective service is provided through the local offices. A Veterans' Employment Division at the national level develops special programs and policies relating to veterans' employment, and obtains proper coordination with other agencies, including the Veterans' Administration, the Army, the Navy, and the Office of Vocational Rehabilitation.

The veterans program of the Employment Service has been expanded to meet the increasing load as men are released from the armed forces. In the expanded program, particular emphasis is placed on a well-rounded information service through which veterans may be informed of the services available to them through other

agencies and organizations in the community. This is in keeping with the policy of the Reemployment and Retraining Administration. Complete placement service is also provided, and in February and March of this year, 108,318 placements of veterans, of whom nearly 70 percent were veterans of the current war, were made.

Arrangements have been made with the Army and Navy for employment service registration of veterans at hospitals prior to their discharge in order that information may be obtained from medical authorities concerning the work limitations resulting from their physical disabilities. In this connection, special training of local office personnel has been directed at the problems of physically handicapped veterans.

Service to veterans, which has always ranked high among employment service responsibilities, will be a major duty in the years of transition and demobilization.

Providing employment counseling.

In addition to veterans, there will be many war workers and others who will need employment counseling. Young people will need to be encouraged to resume their education or to take specific vocational training directed toward peacetime employment. Women and older workers who remain in the labor market will be faced with increased competition and resulting employment problems. Workers whose skills are no longer useful because of changes in production or in location of industries will need information on employment and training opportunities. Civilian handicapped workers frequently require information about vocational rehabilitation services available to them or suitable jobs which they can perform without further training.

The Employment Service is now developing a comprehensive program on employment counseling to be introduced into all operating offices for the specific purpose of enabling local office personnel to meet their obligations to these groups of workers.

Participating in unemployment compensation administration.

An effective network of public employment offices is essential in the administration of unemployment compensation. The public employment service will be responsible for such "work test" as is required. It will also be responsible for bringing unemployed workers in contact with available jobs, partly to keep their period of involuntary unemployment as short as possible, and partly to protect the insurance reserves against questionable claims. Certainly there will be a direct relationship between the success of the Employment Service in channeling veterans and war workers to new jobs and the extent to which the Nation's unemployment-insurance reserves meet the financial drain that will be placed upon them.

SUMMARY

The task of the Employment Service in the transition period is reasonably clear. First, it must serve as a labor exchange and play a vital role in transferring warworkers and veterans to civilian activities. Second, it must assume a large-scale responsibility for job counseling. In so doing, it must provide war workers and veterans with the guidance and information they will need on job opportunities

and training facilities, and must also counsel young workers, many of whom should be encouraged to return to school in order to complete their education and training. Third, it must assemble basic information on occupations and on labor demand and supply for use in carrying out its responsibilities, particularly those related to counseling and training. Fourth, it must operate a Nation-wide clearance machinery to facilitate the transfer of workers from areas in which they are no longer needed to areas where jobs exist.

There can be no doubt as to the ability of the Employment Service to carry the heavy responsibilities implicit in these tasks. Experience, especially the war experience, has proved that the Employment Service system, with its Nation-wide network of local offices, can carry an operating load of great magnitude.

To carry this load in a manner consonant with its obligations, however, the Employment Service must be adequately and competently staffed. This means that it must be adequately financed. It is to be hoped that such adequate financing will be recognized as a public responsibility owed by the Nation to its millions of soldiers and war workers. As a means of maintaining the effectiveness of our Nationwide labor exchange, it is also important that there be no diffusion of specialized placement functions, whether they relate to veterans, agricultural workers, or workers in a special industry. The principle of unified administration of all public placement services must be maintained, thereby strengthening the Employment Service for its transition tasks.

Mr. HABER. First, I assume it is not necessary to point out that the Employment Service does not create jobs, that it is primarily or almost exclusively a service agency, that is, its major function is to act as a lubricant in the labor market and to facilitate the process of bringing jobs and workers together.

Second, in the light of the testimony presented by the witnesses who have appeared before you, it is not necessary to spend too much time in summarizing the tasks which the Employment Service will face when the reconversion job gets to be of dimensions greater than those to which Mr. Cliffe referred a moment ago.

Third, obviously we have developed the largest labor force in American history. We have gotten into the labor force millions of young folks who ought to be induced by somebody to go back and complete their education, both formal and technical. We have brought into the labor force many hundreds of thousands of old folks, men who are entitled to their old-age pensions, and who have given them up in response to a national emergency.

We have brought into productive employment, it has been estimated, nearly 2,000,000 handicapped workers who were not productively employed before. The attitude of employers toward the employment of those people has changed.

You are familiar, I am sure, with the magnitude of the problem involved in the number of women who have been brought into the labor market.

It will be the task of the Employment Service to contribute to such reductions of that labor force as serve the public interest when the war is over.

Senator O'MAHONEY. What precisely do you mean by that, the duty of the Employment Service to contribute to the reduction of the force?

Mr. HABER. In the sense, Senator, that the Employment Service is an employment counselor, which it is of necessity in many communities and which it must be to an even greater extent. The Service is in a position, for example, to advise job applicants under 18 about educational rather than employment opportunities and to assist them in returning to complete their education. Similarly, job applicants over 60 or over 65 who are entitled to retirement pensions might be better off-in fact, the whole economy might be better of—if they leaned on their pensions instead of engaging in industry.

Senator O'MAHONEY. Let's consider the 2,000,000 handicapped workers.

Mr. HABER. That is a different problem. There we have a different problem entirely. The social good would be served by continuing them in employment.

Senator O'MAHONEY. Is it not the fact that by and large those 2,000,000 workers have value, and real value, and have contributed considerably for whatever wages they have received?

Mr. HABER. Unquestionably.

Senator O'MAHONEY. They have been able to make a substantial contribution to production?

Mr. HABER. Their employment has certainly not had a measure of charity in it on the part of those who have employed them. It is obviously a measure of progressive employment policy.

Senator O'MAHONEY. One of our problems will be to do precisely what the United States Employment Service cannot do, namely, to create jobs.

Mr. HABER. That is right.

But to the extent that we have in the labor force those whose interests and the public interests would be better served by further postponing or by retiring

Senator O'MAHONEY (interposing). Are you going to advise the women workers to go back to the kitchen?

Mr. HABER. I do not mean to say that such advice should be given. You will be interested, however, to know that the experience which the Employment Service has had in dealing with the lay-off of women which has taken place thus far makes us much less concerned about that problem than a mere look at statistics would indicate.

For example, in one community in this country where some 30,000 people have been laid off as a result of a very severe contraction in the production of ground ammunition, our observation justifies the conclusion that many of the women in that community who entered the labor market to meet an emergency took their lay-off as a sign that the Government did not need them any more, and they went home. We have lost what is still a vitally needed part of the labor force.

Senator O'MAHONEY. Do you have any figures on that?

Mr. HABER. We can get them.

Senator O'MAHONEY. Will you please do that and put it in the record?

Mr. HABER. Yes, we can put it in the record.

(The information is as follows:)

EFFECTS OF CUT-BACKS UPON THE EMPLOYMENT OF WOMEN IN THE ST. LOUIS, MO., AREA

Between November 1943 and March 1944 employment in several St. Louis war plants was reduced by nearly 20,000 as a result of downward adjustments in production. Altogether, an estimated 10,000 women were laid off. Only 2,000 of the 5,500 women who took new jobs continued in essential activity. Of the remaining 4,500 women, 500 left the area to return to their homes, 2,000 applied for unemployment benefits, and 2,000 immediately retired from the labor force. At a minimum, therefore, 20 percent of the total women laid off were unwilling to take other jobs. In addition, it is likely that many of the women drawing unemployment benefits did not in fact intend to remain in the labor market.

There were available some 4,000 essential jobs suitable for women and some 8,000 jobs in less essential industries. The principal reason that most of the 2,000 women who left the labor market had for refusing to accept new employment was the fact that the wages offered were not commensurate with former earnings.

Since March war plants in the St. Louis area have laid off about 12,000 additional workers, of whom approximately 7,400 were women. While information comparable to that shown above is not yet ready, there is every reason to believe that at least 20 percent of these 7,400 women also stopped work.

Mr. HABER. There is substantiation for the common impression of our regional directors and local employment office managers. One of the dangers in the present situation as lay-offs take place, and they are inevitable and necessary as adjustments in production happen, is that we run a very real risk of losing a substantial number of women workers.

Senator O'MAHONEY. Have you had any report from the lay-off of the Brewster Aeronautical Co?

Mr. HABER. Not yet.

Senator O'MAHONEY. Apparently a rather acute problem has developed there as a result of the cancelation of the Navy contract. Mr. HABER. That is right. I shall indicate some of our methods in dealing with that in a moment.

The case I was referring to was the St. Louis, Mo., lay-off of small arms plants. Our local people report that a good part of the female labor force just disappeared.

Now, the second problem the Employment Service will have to meet is the migration question, to which Mr. Nathan and other witnesses have testified. We have no accurate measure of the volume of migration that is taking place in the United States. It has been estimated to involve five or six million people. But there is no question but dozens of communities have a labor force today way beyond that which they can support when the war is over no matter what the job situation will be.

I refer to the Pacific Northwest, as an example. You take a situation like the one in Portland or Seattle. Very substantial parts of the labor force are engaged in ship construction and ship repair. Obviously no amount of post-war maritime activity will justify employment of that number, nor will there be a need for the present number of workers in the aircraft industry employed in those sections. Those are merely illustrations that can be duplicated many times.

It will have to be somebody's responsibility to guide and direct as to where many of those people are going. We must bear it in mind that the assumption they will all go home is not easily supported by facts. Many of them have been in their present communities 2, 3, or 4 years. They have taken root. Their children are going to school in