THE POSITION OF TEACHING

1. Since 1940-41 the cost of living started its upward climb. This factor combined with the competition of defense areas and surrounding rural sections for teachers and its effect on salaries created a bad situation in the public school teacher situation. Despite a large number of emergency teachers who do not meet standards for regular teaching appointments, the number of unfilled jobs has not declined much.

2. Enrollments at teachers colleges and normal schools declined from 175,000 in 1940-41 to 72,000 in 1943-44, a decline of over 50 percent. In 1946-47 teachers colleges are just approaching prewar enrollments. Schools of education are

reporting larger enrollments than in the prewar period, but many of these are teachers on leave for higher degrees or work. While teacher enrollments in 194647 may go over 150,000, over 60,000 of these are veterans who are the overflow from regular colleges. In fact of the 728,000 college students under the GI bill of rights, only 18,000 clearly indicated their intention to teach.

3. The situation is really more serious when one considers that by the end of the fiscal year 1943-44, 220,000 school teachers left schools (about 80,000 for military service, 65,000 for employment in war industries, and 75,000 for retirement, marriage, and the like). Between 1940-41 and 1944-45 some 350,000 had left the teaching in public schools. A major part left the industry for higher paying jobs in other lines of work and many of these were permanently lost to the profession. Instead, the caliber of teaching personnel has declined because of the reliance on emergency teachers and the enlargement of classes.

4. Alabama: The State interim committee on finance and taxation recommended $6,400,000 below the $54,100,000 recommended by the State' interim committee on education as an annual appropriation. This would mean that in part local boards would have to do without 785 additional classes needed to relieve crowded classes. No teacher can teach under existing conditions. Vocational education teachers would lose raises, but they would take a cut of $300 for the next 2 years and the 200 such teachers needed would not be hired.

New Hampshire (Concord): The Concord Board of Education in raising its budget said "Teachers' pay, which was completely inadequate even before the recent rise in the cost of living, must be raised substantially and at once, if the drainage of personnel from this profession to more adequately paid work is to be stopped." The present situation was "simply a matter of taking anyone who was available without regard to the usual qualifications required for teachers" (Monitor, Concord, N. H., April 11, 1947).

Virginia: There are over 3,000 teachers with substandard licenses. One of every four white teachers is employed on an emergency basis. Seventy-two percent of these licenses have been issued to persons with less than 2 years of college training. The State teacher-training schools have fewer than 100 new elementary school teachers qualifying in the each of the next 4 years. About 900 to 1,000 persons are needed as replacements and over 2,000 are needed to replace emergency teachers.

Indiana: 4,256 teachers were needed in June 1946 and 10 percent of the teachers did not meet the regular standards.

Missouri: Over 17 percent of the teachers are below accepted standards. Eleven percent have less than 1 year of college and 12 percent have 1 year of college.

North Carolina: There were 1,200 vacancies in 1946. Six hundred teachers were employed under substandard licenses.

FACTS CONCERNING THE EDUCATIONAL STATUS OF OUR PEOPLE

1. Let me first summarize some of the findings of the Senate Committee on Education and Labor in reporting out the minimum wage bill, S. 1349, in 1946. On page 28 of part 2 of the report of the committee, we find the following: "It has been evident to many educators and to many citizens that children withdraw from school at an early age because their parents cannot afford their continuance at school. Of the 1,000,000 young people who drop out of school each year about one-third do so because of economic necessity.' This report also points out that free schooling is not entirely free of direct cost to parents for books, fees, lunches, and other direct and necessary school expenses. In fact, prior to 1940, 5,000,000 of our children did not attend school.

2. The States with the highest per capita incomes have lower proportions of their population with no school years completed and the highest average number of school years completed. Similarly, the States with the highest income per capita per school child aged 5-20 years have a larger proportion of school-age children in school, a higher percentage of adult literacy, fewer men disqualified for service in the armed forces by reason of educational deficiencies. In 1940 Mississippi had 392 high-school students enrolled per 1,000 persons from 14 to 17 years of age. While Washington, the wealthiest State, had 952 enrolled per 1,000 in the same age group. The 12 wealthiest States had a ratio of 900 per 1,000. The 9 States with the lowest high-school enrollment rates in 1940 were southern States, which were among the 10 States with the lowest per-capita incomes.

3. Almost 20,000,000 of our voting population have completed less than the sixth grade of education, which exceeds the population of 29 States. Less than 5 percent of Americans 25 years of age and over in 1940 were college graduates and less than 1 in 10 had the benefit of at least 1 year of college education.

4. Despite the increase in population, school enrollments have steadily decreased. Public-school enrollments declined from 26,434,193 in 1933-34 to 23,225,784 in 1944-45. While part of this decline can be attributable to the effect of selective service, our elementary-school enrollments dropped from 20,765,000 in 1933-34 to 17,765,000 in 1944-45.

5. In the 5 years after World War II, 13,000,000 babies were born in the United States, or 4,000,000 more than predicted. In 1946, kindergarten enrollments which had become heretofore stable suddenly increased. Elementary schools will feel the effect by 1950 and high schools by 1953.

6. A number of studies have been made to show how financial limitations, either family or individual, prevent or hinder college attendance. I shall not give all of the details of these studies-they are too numerous in number and character. One of these-The Utilization of Potential College Ability Found in the June 1940 Graduates of Kentucky High Schools (bulletin of the Bureau of School Service, College of Education, University of Kentucky, vol. XV, September 1942 No. 1) summarizes most of these studies. In this study it is shown that 49 percent or 1,960 of the ablest graduates did not enroll in college, while 14 percent (560) of the poorest did. Eighty-two percent (1,600) of the 1,960 lacked the money to go to college. "The real problem is the large number of superior college risks who lack the money to attend college and for whom it will be difficult to find part-time work. There are at least 1,000 of these, by a very conservative estimate," the report states (p. 87).

7. A study of the Milwaukee public high school graduates shows that only 35 percent the most capable students attended full-time college. About 70 percent of those who did not attend indicated a desire to attend if a complete scholarship could be provided. Seventy-seven percent of those who did not attend gave an economic reason as the cause.

The report concluded: "The gifted boys and girls who are not in college are to a large extent the children of the less favored economic classes" (p. 142). Parental Income and College Opportunities by Dr. Helen Bertha Goetsch (Columbia University, 1940 New York). "Schooling is not really free at the present

time. Everyone cannot have an unlimited amount of schooling, unless he possesses a considerable amount of money (p. 145)." "To give the needed financial assistance to all young people who wish to attend college and who would profit from it, entails a program of somewhat liberal proportions" (p. 146).

8. Similar results may be found in a study—Studies in Higher Education-biennial report of the committee on educational research, 1938-40. You may be interested in a discussion of the problem of the extent to which financial limitations prevent college attendance, which is to be found in Teachers College Record, volume 48, No. 4 (January 1947), pages 211-212. The following quotation, taken from that reference, summarizes succinctly the findings from the Minnesota study: "In Minnesota, for example, a study conducted just before World War II revealed that for every graduate in the highest 10 percent of his high-school class who entered college, another of equal ability did not go to any kind of post-highschool education; and for every graduate in the highest 30 percent of his class who attended college, two graduates of equal achievement did not."

SCHOLARSHIPS AND LOANS

1. Data on the financial inability of students of unusual ability to get college training is set forth in paragraphs Nos. 6-8 of Facts Concerning the Educational Status of Our People.

2. Dr. James B. Conant, president of Harvard University in his annual report advocated the establishment of 2-year colleges, locally controlled but federally supported, for students of ability who want more than high-school education. He also advocates scholarships by the Federal Government to students of promise. "Dr. Conant combats the danger that education, at any level, shall be prohibitive in cost to any talented young people. The citizen mindful of his responsibilities and of the 'benefits that flow to the entire Nation' from its educated youth will consider his statements carefully" (Boston Globe, April 10, 1947).

3. In 1939-40 the total amount of noneducational expenditures (which includes scholarship aids) was $28,514,329 and in 1941-42, $28,375,432 in our colleges and universities.

In 1939-40 the total amount of student loan funds held by or for colleges and universities was nearly $29,000,000 compared with $25,400,000 in 1937-38. These are the latest available.

4. In New York State the universities and colleges gave a total of 9,627 scholarships for a sum of $2,570,971 or $267.06 per student aided, in 1941-42. They also gave a total of 5,362 grants of reduced tuition or room-and-board costs for a total of $1,023,927 or $190.96 per student aided; $332,508 was loaned during the year to students (2,290) or $145.20 per student loan.

At the end of the fiscal year in 1942, $3,451,035 was available for student loans-32 percent of this was not in use at the time, 44 percent were on notes not yet due, 23 percent was on notes past due. The demand for loans varied inversely with prosperity and only a limited number showed a desire to finance their education by loans.

The employment of students in 1941-42 both by colleges and outside agencies gave 23,020 students $3,109,698 or $135 per student employed. This was roughly the amount provided by NYA in the 1930's.

5. The report, The Financing of Higher Education in New York State (University of the State of New York bulletin No. 1307, Albany, December 15, 1945), concludes on page 91: "Higher education in New York State is expensive to the student. The data of this study indicate clearly that higher education in New York State is not a privilege that is equally open to capable young people of all economic levels. * * * Another plan, which would extend the opportunity of higher education more quickly, would be through an arrangement for a greatly enlarged program of State scholarships for the ablest high-school graduates.'

"

6. Out of 590 pupils in Milwaukee attending college in 1940, only 75 received scholarships during the first year of college for an average value of $77.57. Ninetyseven pupils or 16 percent got student loans. About one-half of the students worked and of these 81 percent earned nothing or earned less than one-half of their college expenses. Only 6 percent were wholly self-supporting.

7. For the State of Kentucky, a college scholarship program of $500 per student of unusual ability would have cost $2,000,000 a year in 1940 or one-tenth of the cost of its expenditures on highways in that year.

8. Governor Tuck of Virginia recommended in 1947 a $300,000 scholarship fund for its teacher colleges. The Vermont Legislature raised the student teacher scholarship funds from $10,000 to $20,000.

WHY COST OF LIVING INDEX CANNOT BE USED FOR COST OF LIVING INCREASE

1. Food price data are collected monthly by the United States Bureau of Labor Statistics for each of 56 cities. Price data on clothing, house-furnishings, miscellaneous goods and services are collected monthly for each of 21 cities, and for 13 other cities only for March, June, September, and December.

2. Because of the fact that a proper cost-of-living index is available only for 21 cities in 16 States (Alabama, California, Colorado, District of Columbia, Georgia, Illinois, Maryland, Massachusetts, Michigan, Minnesota, Missouri, New York, Ohio, Pennsylvania, Texas, Washington) for 1941 and the present time, it was not possible to include in the bill a provision based on the cost of living reflected by State cost-of-living indexes.

3. The national index is for 4 months (March, June, September, December) based upon food prices in 56 cities and cost of other goods and services in 34 cities. For the other 8 months the index is based on food prices in 56 cities and the prices of commodities and services other than food in 21 cities. The 56 cities cover 37 States and the District of Columbia and include over 80 percent of the population of our cities of 100,000 persons or more and the 34 cities cover 72 percent.

4. The Bureau has compiled local cost-of-living indexes for 32 additional cities and estimates for 7 others not in the national index. This would add 4 States to the 37 mentioned above for the 56 cities in the index for which cost-ofliving data have been available. But in view of the proposed cut in the budget of the Bureau of Labor Statistics, much of the work on the index will have to be curtailed or dropped.

The three bills referred to by Senator Pepper follow:

[H. R. 1, 80th Cong., 1st Sess.]

AMENDMENT, Intended to be proposed by Mr. Pepper to the bill (H. R. 1) to reduce individua income-tax payments, viz: At the proper place in the bill insert the following new section:

SEC. (a) Section 23 of the Internal Revenue Code is amended by adding at the end thereof the following new subsection:

"(bb) TUITION AND INCIDENtal Expenses oF TEACHERS.-In the case of an individual employed as a teacher in any public or private school, all expenses for tuition, books, laboratory fees and equipment, living, travel, and other incidental expenses, necessarily incurred while pursuing at any institution of learning a course of instruction required for continuance of his employment or for advancement in grade or salary and approved by appropriate school authority for such purpose.'

(b) The amendment made by this section shall be applicable to taxable years. beginning after December 31, 1946.

[S. 1131, 80th Cong., 1st Sess.]

A BILL To aid the States in establishing and maintaining scholarship and loan programs for the purpose of enabling individuals to obtain education in the eleventh year of school grade or above.

Be it enacted by the Senate and House of Representatives of the United States of America in Congress assembled, That it is the policy of the United States to encourage the several States to discover and develop the abilities of their residents to the end that the United States may have the benefit of these abilities in achieving its highest scientific, social, economic, and political development.

PURPOSES OF APPROPRIATION

SEC. 2. There is hereby authorized to be appropriated annually, out of any moneys in the Treasury not otherwise appropriated, the moneys provided for in section 3 of this Act, for the purpose of enabling the several States to identify persons of ability and to provide for their education in the eleventh year of school grade or above at educational or training institutions through financial aid in the form of scholarships or loans.

60144-47-pt. 1—22

APPROPRIATIONS AUTHORIZED

SEC. 3. (a) For the purpose of financing scholarships referred to in section 2 of this Act, there is hereby authorized to be appropriated for the fiscal year ending June 30, 1948, $80,000,000; for the fiscal year ending June 30, 1949, $100,000,000; for the fiscal year ending June 30, 1950, $125,000,000; for the fiscal year ending June 30, 1951, $150,000,000; and thereafter such sums as Congress may determine to be necessary for the purposes of this Act.

(b) There is hereby authorized to be appropriated the sum of $250,000,000, which shall constitute a revolving fund in the Treasury of the United States to be available for the purpose of making the loans referred to in section 2 of this Act. There is hereby appropriated to such fund the interest on loans under section 6 (c) of this Act.

(c) Not over 22 per centum of the amounts appropriated under subsections 3 (a) and 3 (b) of this Act shall be available to the United States Office of Education and to the several States to cover the costs of administration of the programs under this Act.

APPORTIONMENT TO STATES

SEC. 4. For the fiscal year ending June 30, 1948, and for each fiscal year thereafter, the Commissioner shall apportion the moneys appropriated for the purposes of this Act among the States which have plans approved meeting the reApportionment among the States shall quirements set forth in section 5 hereof. be made on the basis of two factors: (1) The number of young people fourteen to twenty-six years of age, inclusive, in the State, and (2) the need for assistance in the State as indicated by the quotient obtained by dividing the per capita income The amount of the in the United States by the per capita income in the State. apportionment to any State shall be determined by the following method: First, determine an index for the State by multiplying the two factors above; second divide this index by the sum of the indices for all the States; and finally apply the figure thus obtained to the total moneys to be apportioned. For purposes of this section, such population figures and per capita income figures shall be the latest figures certified by the Department of Commerce. If any State cannot utilize all funds so apportioned to it, or if additional funds are available under this Act for apportionment among the States, the Commissioner shall make further apportionments to the remaining States in the same manner as provided in this section.

STATE PLANS

SEC. 5. (a) In order to secure the benefits of the appropriations provided forn in section 3 of this Act, a State shall, through the legislative authority thereof— (1) accept the provisions of this Act and provide for the administration of the funds to be received;

(2) provide that the State treasurer, or corresponding fiscal official in the State, shall serve as trustee for the funds paid to the State under this Act; (3) establish or designate a single State educational agency as the sole agency for preparing and carrying out or supervising the carrying out of the State plan under this Act;

(4) provide for an audit by the State educational agency or the corresponding State official or office authorized to audit accounts of the State educational agency, of the expenditure of funds received and disbursed as authorized in this Act;

(5) provide that the State educational agency shall make such reports, in such form, and containing such information, as the Commissioner may from time to time reasonably require;

(6) provide for an annual report to be submitted to the Commissioner, showing the essential facts concerning the various programs under this Act; (7) provide that funds received under this Act shall be made available for attendance at an educational or training institution; and

(8) provide in States which maintain separate schools for separate population groups, for a just and equitable apportionment of funds based on a formula in which the proportion of such funds is not less than the proportion of persons aged fourteen to twenty-six, inclusive, of each such group in such State bears to the total population aged fourteen to twenty-six, inclusive, in such State.

Provided, That, in any State, the legislature of which does not meet in time to accept the provisions of this Act for the fiscal year ending June 30, 1948, or any