What the policies of corporate giving to education should be is a debatable question with which this study is not particularly concerned. Probably most people would say that the corporations have a right to decide for themselves how they should spend their own money. This study is concerned with what the policies actually are and their current and prospective effects upon technical and professional manpower production as a national problem. Consideration of the national interest and responsibility is presumably dominant in the Federal programs, whereas other interests are at present evident in the corporation programs. This does not imply that corporate giving to higher education is undesirable from the viewpoint of the national welfare. It does imply that such corporate giving is not an attack upon the problem of technical and professional manpower production primarily from the viewpoint of the national interest. Many nongovernmental organizations other than corporations, such as professional societies, are also contributing to professional manpower development, particularly in the sciences and engineering. Their varied programs include such activities as administering fellowship funds, giving aid to vocational guidance in high schools, and providing "curriculum" enrichment materials. While these contributions are important, they are small with respect to funds made available, in comparison with the corporation grants. M. PROSPECT FOR REMOVAL OF THE SHORTAGES BY EXISTING FORCES Another consideration is the question of whether existing forces will remove the shortages of professionally developed "mindpower"and if so, how soon or how late. Insofar as this study is concerned, the answer to this question is that a conclusive answer has not been found. However, some persons have ventured predictions. These appear generally to sum up to expression of a doubt that existing forces will make up the shortages in less than a decade under anticipated economic conditions. Following are some relevant data pertaining only to the shortage of engineers and physical scientists. (Similar data are compiled for other fields elsewhere in this report. The reader is reminded that the scientist-engineer shortage is only one, although the most publicized, aspect of the overall manpower problem.) The current combined deficits of physical scientists and engineers are most frequently estimated to be from 45,000 to 65,000 persons. The average annual demand for physical scientists and engineers during the next 10 years is most frequently estimated from 80,000 to 100,000 persons.23 23 These estimates reflect attempts to combine figures from various sources. The number of newly available engineer and scientist jobs, upon which the "demand" estimates are based, is projected in terms of the estimated gross national product. Adjustment is made to consider the number of deaths and retirements, as estimated by the Bureau of Labor Statistics. CHAPTER III IMPLICATIONS FOR LEGISLATION A. SUMMARY Findings from this study imply, among other things, that (1) there may be a need for Federal and/or State legislation further to promote the training of subprofessional and professional manpower; (2) if there is such a need it has emergency as well as long-range aspects; (3) almost any measure which would promote education in the United States would aid in our "war of the classrooms" with the Soviet Union; but (4) major legislative proposals for such promotion face hurdles of controversy. The findings from this study also contain a number of implications for specific proposals. B. DEGREE OF FEDERAL RESPONSIBILITY In considering the implications for national legislation discoverable in this report, the first concern is whether or not the problem involves a Federal responsibility. Meeting the Nation's needs for scientific, engineering, and other professional manpower requires the use of our entire organization and system of education. If the overwhelming total educational task is not a concern of the Federal Government, but only of the States, localities and privately supported institutions, then this study contains no implications for constructive national legislation, and the entire report may be disregarded from this viewpoint. Therefore, let us first consider whether such is the case. So far as the literature examined in this study is concerned, it contains numerous proposals for Federal action, with little questioning of Federal responsibility in this field. Apparently the writers generally take for granted some degree of Federal responsibility for education, particularly in view of the constitutional Federal responsibility for the national defense, and its increasing demands for highly trained manpower in many fields. At the same time the writers generally acknowledge that traditionally and under the Constitution the principal responsibility for education rests in the States and localities. Research by this writer and others has shown that in its infancy the Federal Government assumed a share of the responsibility for education. The Federal Government early undertook two types of activities: (1) Operating educational programs of its own, and (2) aiding the States and Territories in financing and promoting education. Federal educational programs and aids have been expanded by numerous actions by the Congress and by the executive branch of the Government, with the support of Supreme Court decisions in some instances.31 Ch. V. of this report is a history of Federal action and policy affecting professional manpower development. 91747-57-3 23 For every 5 new engineers industry needed this year, only 3 were graduated from United States colleges. * * * We have opportunities for a thousand more technically trained people each year. The need may double in the next 10 years." The apportionment of some of the costs of higher education to the industrial and commercial organizations is a logical development, considering industry's frantic pursuit of talent." While no one can say positively that the trend of increased corporate support of higher education will continue, it does appear likely in the absence of a business recession. On the other hand there is evidence that many talented young people have been "priced right out of the college classroom." It has been estimated that each year approximately 100,000 of our Nation's most talented high-school graduates are deterred chiefly for financial rea s.29 Individual motivation and financial ability to obtain higher education, however, appears to be increasing at present. A helpful measuring rod of this ability is per capita disposable personal income which has increased, in terms of constant 1957 dollars, from approximately $950 in 1930 to over $1,600 this year. Other considerations bearing upon the prospect for removal of the shortages by existing forces have been brought out elsewhere in this report. These examples will illustrate the conflicting nature of relevant facts and opinions. Favorable trends, which have been noted, reflect an encouraging vitality of interest in the manpower problem. However, the literature shows there is a respectable body of opinion that existing forces cannot or will not do the job. Whether Federal action is necessary to effect a concerted offensive to relieve the shortages remains a matter for the decision of Congress The national interest demands that the shortage of talent will not become, as one General Electric official put it-"a way of life"." N. OTHER CONSIDERATIONS Some other major considerations in this study are reviewed and summarized in subsequent chapters. These relate to (1) policies and precedents discernible in the history of Federal and State support of education, particularly in relation to technical and professional manpower development, (2) current Federal programs giving aid to students for professional training, (3) other Federal contributions toward the development of technical and professional manpower, including the work of recently appointed presidential committees, and (4) congressional and noncongressional proposals for further Federal action in this field. The reader is here reminded that this report does not pretend to explore all the ramifications of the complicated manpower development problem, although it supplies a substantial base for congressional consideration of relevant legislative proposals. The report does not blueprint a legislative attack upon the problem, but, in the following discussion of legislative implications, draws some guidelines for approaches to it. 27 As General Electric Sees It, Wall Street Journal, Sept. 15, 1955, p. 13. 29 The President's Committee on Education Beyond the High School, first interim report to the President, Washington. November 1956, p. 5. 30 Needed-More Men With the Answers, Newsweek, Apr. 2, 1956, pp. 67-68. CHAPTER III IMPLICATIONS FOR LEGISLATION A. SUMMARY Findings from this study imply, amorg other things, that (1) there may be a need for Federal and/or State legislation further to promote the training of subprofessional and professional manpower; (2) if there is such a need it has emergency as well as long-range aspects; (3) almost any measure which would promote education in the United States would aid in our "war of the classrooms" with the Soviet Union; but (4) major legislative proposals for such promotion face hurdles of controversy. The findings from this study also contain a number of implications for specific proposals. B. DEGREE OF FEDERAL RESPONSIBILITY In considering the implications for national legislation discoverable in this report, the first concern is whether or not the problem involves a Federal responsibility. Meeting the Nation's needs for scientific, engineering, and other professional manpower requires the use of our entire organization and system of education. If the overwhelming total educational task is not a concern of the Federal Government, but only of the States, localities and privately supported institutions, then this study contains no implications for constructive national legislation, and the entire report may be disregarded from this viewpoint. Therefore, let us first consider whether such is the case. So far as the literature examined in this study is concerned, it contains numerous proposals for Federal action, with little questioning of Federal responsibility in this field. Apparently the writers generally take for granted some degree of Federal responsibility for education, particularly in view of the constitutional Federal responsibility for the national defense, and its increasing demands for highly trained manpower in many fields. At the same time the writers generally acknowledge that traditionally and under the Constitution the principal responsibility for education rests in the States and localities. Research by this writer and others has shown that in its infancy the Federal Government assumed a share of the responsibility for education. The Federal Government early undertook two types of activities: (1) Operating educational programs of its own, and (2) aiding the States and Territories in financing and promoting education. Federal educational programs and aids have been expanded by numerous actions by the Congress and by the executive branch of the Government, with the support of Supreme Court decisions in some instances.31 Ch. V. of this report is a history of Federal action and policy affecting professional man. power development. 91747-57-3 23 Throughout the history of the country, the Federal Government has, in actual practice, if not in inherent duty, borne a share of the responsibility for education-particularly for the financing of education, and for training in the armed services. It is therefore apparent that, on the basis of this fact alone, this report contains implications for Federal legislation. The main question is whether the findings and conclusions from this study point toward a reduction, continuation in status quo, or expansion of the Federal role in education, and whether the legislation, if any is needed, should be of one specific nature or another. This question cannot be fully answered here. The answer is largely a matter of opinion on many points. In the following pages the writer discusses several of the broader implications, and summarizes other findings and conclusions from this study which are of significance in relation to legislative proposals. C. NEED FOR LEGISLATION Certain points bearing on the need have been pointed out: (1) The facts and opinions discovered in this investigation generally support the conclusion that the solution of the problem of trained manpower development is important to the national survival, and (2) there is a grave, national need for more and better training of technical and professional manpower. Little or no disagreement was found in the literature on these points, although someone has pointed out that "shortage" is a relative matter-that there may be, for example, a shortage of beautiful women. These findings imply that there may be a need for new Federal and/or State legislation promotional to manpower training. If such a need exists, an implication that it calls for Federal action arises from the Federal responsibility for the national defense, the Federal concern for the general welfare, and the existing Federal administration of some educational programs and participation in others by the Federal Government. On the other hand, an implication that it calls for State and local action arises from the traditional, and constitutional, State and local responsibility for education in general. This investigation has revealed widespread expressions of opinion that large new programs of Federal promotion of education are needed, with little published expression of opposition to most of these proposals. However, most of them have not been debated in Congress. Much opposition has been expressed to the proposal for Federal aid to school construction, now being widely considered both within and outside of Congress. D. KIND OF LEGISLATION A fundamental and outstanding conclusion from this study is that trained manpower development is basically an educational problem and that it runs wide and deep. It is not a problem merely of the shortage of scientists and engineers. It is a problem of trained manpower shortages in many fields. The national defense and the general welfare call for strengthening our entire system of education. This implies that no single legislative measure, such as establishment of scholarships for science students, can be expected to do the |