Changes in the Family | Causes of Changes in the Family

CHANGES IN THE FAMILY

Causes of Changes in the Family.—The family at the present time is in a transition era. Its machinery is not working smoothly. Its environment is undergoing transformation. A hundred years ago the family was strictly rural; not more than three per cent of the people lived in large communities. Now nearly one-half are classified as urban by the United States census of 1910, and those who remain rural feel the influences of the town. There is far less economic independence on the farm than formerly, and in the towns and cities the home is little more than a place in which to sleep and eat for an increasing number of workers, both men and women. The family on the farm is no longer a perfectly representative type of the family in the more populous centres.

These changes are due mainly to the requirements of industry, but partly at least to the desire of all members of the family to share in urban life. The increasing ease of communication and travel extends the mutual acquaintance of city and country people and, as the city is brought nearer, its pull upon the young people of the community strengthens. There is also an increasing tendency of the women folk to enter the various departments of industry outside of the home. It is increasingly difficult for one person to satisfy the needs of a large family. This tends to send the family to the city, where there are wider opportunities, and to drive women and children into socialized industry; at the same time, it tends to restrict the number of children in families that have high ideals for women and children. Family life everywhere is becoming increasingly difficult, and at the same time every member of the family is growing more independent in temper. The result is the breaking up of a large number of homes, because of the departure of the children, the separation of husband and wife, the desertion of parents, or the legal divorce of married persons. The maintenance of the family as a social institution is seriously threatened.

Static vs. Dynamic Factors.—There are factors entering into family life that act as bonds to cement the individual members together. Such are the material goods that they enjoy in common, like the home with its comforts and the means of support upon which they all rely. In addition to these there are psychical elements that enter into their relations and strengthen these bonds. The inheritance of the peculiar traits, manners, and customs that differentiate one family from another; the reputation of the family name and pride in its influence; an affection, understanding, and sympathy that come from the intimacy of the home life and the appreciation of one another's best qualities are ties that do not easily rend or loosen.

On the other hand, there are centrifugal forces that are pushing the members of the family apart. At the bottom is selfish desire, which frets at restriction, and which is stimulated by the current emphasis upon personal pleasure and individual independence. The family solidarity which made the sons Democrats because their father voted that party ticket, or the daughters Methodists because their mother's religious preferences were for that denomination, has ceased to be effective. Every member of the family has his daily occupations in diverse localities. The head of the household may find his business duties in the city twenty miles away, or on the road that leads him far afield across the continent. For long hours the children are in school. The housewife is the only member of the family who remains at home and her outside interests and occupations have multiplied so rapidly as to make her, too, a comparative stranger to the home life. Modern industrialism has laid its hand upon the women and children, and thousands of them know the home only at morning and night.

The Strain on the Urban Family.—The rapid growth of cities, with the increase of buildings for the joint occupancy of a number of families, tends to disunity in each particular family and to a reduction in the size of families. The privacy and sense of intimate seclusion of the detached home is violated. The modern apartment-house has a common hall and stairway for a dozen families and a common dining-room and kitchen on the model of a hotel. The tenements are human incubators from which children overflow upon the streets, boarders invade the privacy of the family bedroom, and even sanitary conveniences are public. Home life is violated in the tenement by the pressure of an unfavorable environment; it perishes on the avenue because of a compelling desire to gain as much freedom as possible from household care.

The care of a modern household grows in difficulty. Although the housekeeper has been relieved of performing certain economic functions that added to the burden of her grandmother, her responsibilities have been complicated by a number of conditions that are peculiar to the modern life of the town. Social custom demands of the upper classes a far more careful observance of fashion in dress and household furnishings, and in the exchange of social courtesies. The increasing cost of living due to these circumstances, and to a constantly rising standard of living, reacts upon the mind and nerves of the housewife with accelerating force. And not the least of her difficulties is the growing seriousness of the servant problem. Custom, social obligations, and nervous strain combine to make essential the help of a servant in the home. But the American maid is too independent and high-minded to make a household servant, and the American matron in the main has not learned how to be a just and considerate mistress. The result has been an influx of immigrant labor by servants who are untrained and inefficient, yet soon learn to make successful demands upon the employer for larger wages and more privileges because they are so essential to the comfort and even the existence of the family. Family life is increasingly at the mercy of the household employee. It is not strange that many women prefer the comfort and relief of an apartment or hotel, that many more hesitate to assume the responsibility of marriage and children, preferring to undertake their own self-support, and that not a few seek divorce.

Family Desertion.—While the burden of housekeeping rests upon the wife, there are corresponding weights and annoyances that fall upon the man. Business pressure and professional responsibility are wearying; he, too, feels the strain upon his nerves. When he returns home at evening he is easily disturbed by a worried wife, tired and fretful children, and the unmistakable atmosphere of gloom and friction that permeates many homes. He contrasts his unenviable position with the freedom and good-fellowship of the club, and chafes under the family bonds. In many cases he breaks them and sets himself free by way of the divorce court. The course of men of the upper class is paralleled by that of the working man or idler who meets similar conditions in a home where the servant does not enter, but where there is a surplus of children. He finds frequent relief in the saloon, and eventually escapes by deserting his family altogether, instead of having recourse to the law. This practice of desertion, which is the poor man's method of divorce, is one of the continual perplexities of organized charity, and constitutes one of the serious problems of family life. There are gradations in the practice of desertion, and it is not confined to men. The social butterfly who neglects her children to flutter here and there is a temporary deserter, little less culpable than the lazy husband who has an attack of wanderlust before the birth of each child, and who returns to enjoy the comforts of home as soon as his wife is again able to assume the function of bread-winner for the growing family. From these it is but a step to the mutual desertion of a man and a woman, who from incompatibility of temper find it advisable to separate and go their own selfish ways, to wait until the law allows a final severance of the marriage bond.

It is indisputable that this breaking up of the home is reacting seriously upon the moral character of the present generation; there is a carelessness in assuming the responsibility of marriage, and too much shirking of responsibility when the burden weighs heavily. There is a weakening of real affection and a consequent lack of mutual forbearance; there is an increasing feeling that marriage is a lottery and not worth while unless it promises increased satisfaction of sexual, economic, or social desires and ambitions.

Feminism.—There can be no question that the growing independence of woman has complicated the family situation. In reaction against the long subjection that has fallen to her lot, the modern woman in many cases rebels against the control of custom and the expectations of society, refuses to regard herself as strictly a home-keeper, and in some cases is unwilling to become a mother. She seeks wider associations and a larger range of activities outside of the home, she demands the same rights and privileges that belong to man, and she dreams of the day when her power as well as her influence will help to mould social institutions. The feminist movement is in the large a wholesome reaction against an undeserved subserviency to the masculine will. Undoubtedly it contains great social potencies. It deserves kindly reception in the struggle to reform and reconstruct society where society is weak.

The present situation deserves not abuse, but the most careful consideration from every man. In countless cases woman has not only been repressed from activities outside of the family group, but has been oppressed in her own home also. America prides itself on its consideration for woman in comparison with the general European attitude toward her, but too often chivalry is not exercised in the home. Often the wife has been a slave in the household where she should have been queen. She has been subject to the passion of an hour and the whim of a moment. She has been servant rather than helpmeet. Upon her have fallen the reproaches of the unbridled temper of other members of the family; upon her have rested the burdens that others have shirked. Husband and children have been free to find diversion elsewhere; family responsibilities or broken health have confined her at home. Her husband might even find sex satisfaction away from home, but public opinion would be more lenient with him than with her if she offended. The time has come when it is right that these inequalities and injustices should cease. Society owes to woman not only her right to her own person and property, but the right to bear, also, her fair share of social responsibility in this modern world.

Yet in the process of coming to her own, there is danger that the wife will forget that marriage is the most precious of human relations; that the home has the first claim upon her; that motherhood is the greatest privilege to which any woman, however socially gifted, can aspire; and that social institutions of tried worth are not lightly to be cast upon the rubbish heap. It is by no means certain that society can afford or that women ought to demand individualistic rights that will put in jeopardy the welfare of the remainder of the family. The average woman has not the strength to carry properly the burden of home cares plus large political and social responsibilities, nor has she the money to employ in the home all the modern improvements of labor-saving devices and skilled service that might in a measure take her place. Nor is it at all certain that the granting of individual rights to women would tend to purify sex relations, but it is quite conceivable that the old moral and religious sanctions of marriage may disappear and the State assume the task of caring for all children. It is clear that the rights and duties of women constitute a very serious part of the problem of family life.

Individual Rights vs. Social Duties.—The greatest weakness to be found in twentieth-century society is the disposition on the part of almost all individuals to place personal rights ahead of social duties. The modern spirit of individualism has grown strong since the Renaissance and the Reformation. It has forced political changes until absolutism has been yielding everywhere to democracy. It has extended social privileges until it has become possible for any one with push and ability to make his way to the top rung of the ladder of social prestige. It has permitted freedom to profess and practise any religion, and to advocate the most bizarre ideas in ethics and philosophy. It has brought human individuals to the place where they feel that nothing may be permitted to stand between them and the satisfaction of personal desire. The disciples of Nietzsche do not hesitate to stand boldly for the principle that might makes right, that he who can crush his competitors in the race for pleasure and profit has an indisputable claim on whatever he can grasp, and that the principle of mutual consideration is antiquated and ridiculous. Such principles and privileges may comport with the elemental instincts and interests of unrestrained, primitive creatures, but they do not harmonize with requirements of social solidarity and efficiency. Social evolution in the past has come only as the struggle for individual existence was modified by consideration for the needs of another, and social welfare in the future can be realized only as men and women both are willing to sacrifice age-long prejudice or momentary pleasure and profit to the permanent good of the larger group.

READING REFERENCES

Cooley: Social Organization, pages 356-371.

Brandt and Baldwin: Family Desertion.

Dealey: The Family in Its Sociological Aspects, pages 85-95, 109-118.

Goodsell: The Family as a Social and Educational Institution, pages 456-477.

Howard: History of Matrimonial Institutions, III, pages 239-250.

The Aim of the University

The Aim of the University

"All public institutions of learning are called into existence by social needs, and first of all by technical practical necessities. Theoretical interests may lead to the founding of private associations such as the Greek philosophers' schools; public schools owe their origin to the social need for professional training. Thus during the Middle Ages the first schools were called into being by the need of professional training for ecclesiastics, the first learned profession, and a calling whose importance seemed to demand such training. Essentially the same necessity called into being the Universities of the Parisian type, with their artistic and theological faculties. The two other types of professional schools, the law school and the medical school, which were first developed in Italy, then united with the former. The Universities therefore originated as a union of 'technical' schools for ecclesiastics, jurists, and physicians, to which division the faculty of Arts was related as a general preparatory school, until during the nineteenth century it also assumed something of the character of a professional institution for the training of teachers for the Secondary School."[41]

Thus the early aim of the University was, as it still continues to be, to provide the training for the after-supply of those services which the State requires at the hands of her theologians, her jurists, and her physicians. In Germany, and to some extent even in our own country, the Arts faculty of the University is ceasing to perform the function of a General Preparatory School to the professional schools, and is becoming an independent school, having for its aim the preparation of teachers for the Intermediate and Secondary Schools of the country. In Scotland, indeed, it serves at the present time as a Preparatory School mainly to the theological faculty. As the Secondary Schools of the country become more efficient, better differentiated, and better organised, the need of a Preparatory School within our Universities will gradually become less, and the University will be able to devote more of her energies to the training of students preparing for some one or other of the above-named professions. With this change the philosophical studies of the Arts faculty will become increasingly important, and the method of teaching the linguistic and scientific studies receive a larger share of attention than they do at present.

But the other and perhaps the more important function of the University is to carry on and to extend the work of scientific and literary research for its own sake. This is the dominant note of the German and American Universities of to-day. The emphasis is laid not so much upon their function as schools for the supply of certain professional services, but upon them as great national laboratories for the extension of knowledge and the betterment of practice. In Great Britain, and especially in Scotland, this conception of the function of the University has not received the same prominence as, e.g., in Germany, where the intimate union of scientific investigation and professional instruction gives the German Universities their peculiar character. Indeed, in the latter country the tendency at the present time is rather to over-emphasise the function of the Universities in furthering scientific and literary research to the neglect of the other and no less important aim. Two dangers must be avoided. In the first place, whenever the chief emphasis is laid upon the Universities as mainly schools for professional training, the teaching tends to become narrow and dogmatic. The teacher ceasing to be an investigator, gradually loses touch with the spirit of the age, and as a consequence he fails adequately to perform the duty of efficiently training his students for their after life-work. In the second place, when the emphasis is laid strongly upon the function of the University as an institution for the carrying on of scientific and literary research there is the danger of again lapsing into the old fallacy that knowledge for knowledge' sake is an end in itself, that the object of education is to acquire and organise systems of means which function in the attainment of no practical end, and that the acquisition of knowledge is valuable for the culture of the individual mind apart from any social purpose which the knowledge subserves.

The University must therefore ever keep in view the two aims, of advancing knowledge not for its own sake but in order that future action may be rendered more efficient, and of adequately training for professional services.

But to the older professions for which the University prepares there have been added during the past century other vocations or professions which need and demand an education no less important and no less thorough than the education for the well established recognised professions. The need for the higher training of the future leaders of industry and the future captains of commerce has been provided by the organisation and establishment of technological schools and colleges. The establishment and organisation of the "Technical University" has been more thorough in Germany than in this country. There we find established newer institutions, of which the Charlottenburg College is the best known and most important, for the higher education of those intended in after-life to perform the more important industrial services of the community. These institutions both in their organisation and instruction are constantly approximating in type to the older Universities.

The recently established Universities in the North of England attempt, with what success it is too early yet to declare, to combine both aims of training for the older and newer professions. In Scotland the latter work is largely undertaken by the Technical Colleges, and in these institutions the increasing need is for the extension and development of the Day-school course.

One other question of some importance remains for brief consideration. In our own country, but more especially in Germany, there is a tendency at the present time to effect a complete separation between the work of the University and the work of the Technical College.

This separation has arisen partly through the operation of external historical conditions, but it has also arisen partly through the tendency in certain academic circles to look down upon technical knowledge and ability as something inferior. The exclusiveness and the torpor of the older Universities in many cases has been a further cause tending to the creation of the Technical College separated from the University.

Such a separation, however, is good neither for the University nor for the Technical College. The former in carrying out the aim of scientific research and of the extension of knowledge requires ever the vivifying touch of actual concrete experience, and this it can only obtain by keeping in close contact with those whose chief function is the application of scientific knowledge to practice. The latter in carrying out its more practical aims requires, if it is to be saved from the narrowness of mere specialisation and from degenerating into empirical methods, the constant co-operation of those whose outlook is not narrowed down to the immediate practical end, but takes in the subject as a whole, and whose chief function is the better systematisation of knowledge.

Hence, while the aim of the University is different from that of the Technical College, they are so intimately correlated that neither can reach its fullest development without the aid and co-operation of the other. The Technical Colleges should be the professional schools attached to the scientific side of the Universities. Moreover, this division and separation is economically wasteful, since the general training in science which must precede the practical training has to be carried on both in the University and in the Technical College.

In Scotland this separation has not advanced to such a stage as is the case in Germany. In any further reorganisation of university and higher education it is earnestly to be hoped that the Day Technical College will find its rightful place as an integral part of the University, and that the latter may realise that her function is to further and extend the bounds of knowledge in order that practice in every sphere of life may be rendered more efficient.

FOOTNOTE:

[41] Cf. Prof. Paulsen, The German Universities, p. 111 (Eng. Trans.).

The Aim of the Secondary School

The Aim of the Secondary School

We have seen that on its intellectual side the Primary School has two main functions to perform in the education of the child. In the first place, the school must endeavour to secure that the elementary arts of reading, writing, and arithmetic are well organised and well established in the mind of the child. The more effectively the language and number systems are organised and established the more efficiently will they function in the performance of future action. Moreover, it is only when they have become so organised as to function automatically that they reach their highest efficiency as instruments for the further extension of knowledge or of practice.

In the second place, the Primary School must train the pupil to the use of these systems as instruments for the realisation of other and concrete ends or interests. E.g., the number system may be used in the furtherance of the measuring interest, the weighing interest, and so on. The two dangers we have to avoid are on the one hand the barren formalism of treating the acquisition of these arts as ends in themselves, and on the other of supposing that the real interests can be intelligently understood merely through the instrumentality of the elementary arts and that they do not require independent treatment of themselves.

If the child is destined to go no farther than the Elementary School stage, then at least the concluding year of the school should be mainly devoted to training him to the use of the primary instrumental arts in the establishment of systems of knowledge necessary for the realisation of the simpler practical ends of life.

If, however, the child is selected for a course of higher education, the educative process becomes different in nature. In the first-named case we are content to give the child practice in the application of an already established system to concrete problems. In the second case we endeavour, using the elementary systems as means, to establish other systems of knowledge as means to the attainment of still further ends. We may, e.g., on the basis of the vernacular language build up a foreign language system as a means either to commercial intercourse or to literary culture. In short, the aim of the Secondary School is, using the elementary systems as the basal means, to organise and establish other systems of means for the attainment of the more complex interests of after-life, practical and theoretical. The object of establishing a system of knowledge is not to pass examinations,—this is the schoolmaster's error,—but to render future action more efficient, to further in after-life some complex interest of a practical or theoretical nature. To the few, indeed, the establishment and systematisation of knowledge may be an end in itself. To the many, the systematisation and establishment is and ought to be undertaken as a means to the more efficient furtherance of some practical end. Further, the only justification for the seeking of knowledge for its own sake is that thereby it may be better understood, better established and better systematised, and so become better fitted to make practice more efficient.

Hence the question as regards secondary education resolves itself into the question as to the nature of the systems of knowledge which we should endeavour to establish systematically in the mind of the child, and before we can answer this question we must know the length of time which the child can afford to spend at the Higher School and his possible vocation in after-life. For if education is the process by which the child is led to acquire and organise experiences so as to render future action more efficient, we must know something of the nature of this action, something of the nature of the future social services for which his education is to train him, and the school period must be of sufficient length to enable the required systems to be established permanently and thoroughly.

Neglect of these two obvious considerations has led in the past and even in the present leads to two errors in our organisation of the means of secondary education. In the first place, until quite recently, we have been too much inclined to the opinion that secondary education was all of one type, and even where this error has been recognised, as in Germany, the tendency still exists to emphasise unduly the particular type of education which has as its main ingredients the ancient classical languages. We spend years in the attempt to reconstruct and establish in the mind of the youth a knowledge of these language systems, and in a large number of cases we fail to attain adequately even this end. We build up laboriously systems of means which in after-life function directly in the attainment of no end, and as a consequence, in many cases, the dissolution of the system is as rapid as its acquisition was slow. At the time of the Renascence and when first introduced into the curriculum of the Secondary School, these languages, and especially Latin, did then possess a high functional value, since they were the indispensable means to the furtherance of knowledge and to social intercourse. To-day they possess little functional value, and their claim for admission into the school curriculum is chiefly based upon their so-called training and disciplinary values.

Let us consider this for a moment: in the reconstruction of, say, the Latin language, the pupil is being trained in the reconstruction and re-establishment of a language system whose methods and rules of construction are much more complex and intricate than those of any living language, and whose forms are so designed as to bring out exactly varied shades of meaning. Hence, in its acquisition the pupil receives practice in the exact discrimination of the meaning of words, and in their accurate placing and reconstruction within the sentence—the unit of expression—in order to bring out the exact interpretation of the thought or statement of fact intended by the writer.

Further, we may train the pupil during the school period to self-apply the language system in the further interpretation of relatively unknown passages. In short, we can train him in the processes of language construction and of language application. Moreover, in considering this question, we must take into account that during the school period the main interest must necessarily be directed to the acquisition and establishment of the system itself, that little attention can be directed towards the content for its own sake, and that the establishment of the system so that it shall function automatically in the interpretation of the content is a stage which is attained in comparatively few cases, and then only after many years of study.

If we then take into account, and we must take into account, the fact that the chief value of the ancient languages as Secondary School subjects lies in their use as training and disciplinary instruments—that in after-life they function directly in the attainment of no practical end, and only indirectly in so far as the habits acquired of the exact weighing of the meaning of words and of the accurate placing of words are carried over for the attainment of practical ends in which these qualities of exact interpretation and exact expression of language are the chief requisites—we shall understand that while they may be of value in securing the efficient after-performance of certain social services, they play but a small part in the furthering of any service which requires an exact knowledge of the qualities of things and an accurate knowledge of the laws governing the operations of nature.

In the second place, neglect of the fact that the aim of education is to establish systems of means for the efficient after-performance of actions has led us to neglect the fact that in the acquisition and establishment of systems of knowledge we require to limit the scope of our aims and to carry on the process of education during a period sufficiently extended to admit of the stable establishment of the systems. If, e.g., we attempt to establish too many systems, then as a result we often stably establish none, with the further result that after the school period has passed the knowledge gained soon disappears. If, again, we attempt in too limited a time to establish an elaborate and complex system of knowledge, as e.g. that of the Latin language, then we never reach the stage when it can be self-applied intelligently in the furtherance of any end. Hence, if a boy leaves the Elementary School and enters upon a High School course with the intention of leaving at the age of fifteen or sixteen and entering upon some employment, the systems of knowledge which can be established during the school period must be different from those of the boy whose education is intended to be extended until twenty-one. If, then, a national system of education is to make adequate provision for the efficient after-performance of the various social services which the nation requires at the hands of its adult members; if, in short, it is to be organic to the life of the State as a whole, then there must be not one type of higher education but several; for it is to her Higher Schools that a nation must principally look for the preparation of citizens who in after-life will discharge the more important services of the community. This truth has already been realised in other countries, notably Germany. We are only beginning to realise it, and to take measures to carry it into practice.

Moreover, in a national system of education we shall need not one system of advancing means but several; not merely an educational ladder that may carry the boy to the University, but also educational steps by which the individual may mount to the Technical or the Commercial or the Art College.

Hence our aims in the higher education of the youth, and as a consequence the nature of the systems of knowledge which we should endeavour to organise and to establish in their minds, will vary in accordance with the nature of the service which in adult life the boy is likely to perform. Now, these services may be divided into four main classes.

In the first place, every nation requires an army of efficient industrial workers. Partly, in some cases, owing to the decline of the apprenticeship system, partly owing to the fact that where apprentices are still employed no systematic measures are taken to instruct the youth in the principles underlying his particular art, it is becoming increasingly necessary that the school should supply and supplement the knowledge required for the efficient after-performance of the industrial and technical arts. Hence one kind of Higher School urgently required is the Trade or Technical School. In a large number of cases this need could be supplied by Evening Continuation Schools. At present, however, our Evening Schools are too predominantly commercial and literary, and do not make adequate provision for the trade and technical needs of the community. Further, we must endeavour to secure that the boy or girl enters the Evening Continuation School as soon after he leaves the Elementary School as possible. For in many cases at the present time the boy after leaving the Primary School loafs at night about the streets, and in a short time through disuse forgets much of what he learned at school, and often in addition acquires habits which tend to unfit him for any future strenuous effort. When, therefore, he feels the need for more knowledge in order to advance in his trade, the Evening School has too frequently to begin by doing over again the work of the Elementary School before it can enter upon the work of establishing the higher system of knowledge.

In the second place, a nation such as ours requires a trained body of servants for the efficient carrying on of her commerce. Preparation for the simpler forms of service could be furnished by the commercial classes of the Evening Continuation Schools. For preparation for the higher services, we require a type of school which beginning after the Elementary School stage has been completed, carries on the boy's education until the fifteenth or sixteenth year, whose chief aim should be to lay a sound basis in the acquisition and organisation of one or two modern languages and in the acquirement of the arts instrumental for the carrying on of commercial transactions. Further means of advance in these studies should be provided by the day or evening Commercial College.

In the third place, every modern nation requires a trained body of scientific workers for the after carrying on of her industrial and technical arts. Hence we need a type of school which by making the physical sciences their chief object of study prepare the way for the future training of the student in the application of scientific knowledge to the furtherance of the industrial and technical arts.

Lastly, we require a type of secondary education which shall prepare the boy for the efficient discharge of the duties which the State requires at the hands of her physicians, her theologians, her jurists.

Thus, since all education is the acquisition of experiences that will render future action more efficient, the nature of the secondary education given must depend on the nature of the services to which the systems of knowledge are the means. A classical education may be a good preparation for the after-discharge of the duties of the theologian or the jurist; it certainly will not do much for the efficient discharge of the duties of the mechanical engineer and the practical chemist.

But one error must be avoided. Whilst the various types of Secondary School must fashion their curricula according to the nature of the services for which they prepare, we must not forget that the school has other duties to perform than the mere preparation for the social services by which a man hereafter earns his living. It must in every case endeavour to organise and establish those systems of means necessary for the after-discharge of the civic duties of life and instrumental for the right use of leisure.

Practically we need three types of Higher School—one in which modern languages form the basal subjects of the curriculum; one in which the physical sciences are the main systems organised and established; one in which the classical languages form the main staple of education.

The Aim of the Infant School

The Aim of the Infant School

It is needless to point out that the method of educating the infant mind is the method of all education—viz., the regulation of the process by which experiences are acquired and organised so as to render the performance of future action more efficient. This, as we shall see later, is the fundamental truth at the foundation of the Kindergarten method of Froebel, and it must guide and control our conduct not only during the earlier stages but throughout the whole process of education.

Moreover, since the early acquisitions of the child are the bases upon which all further knowledge and practice are founded, we must realise how important these first experiences are for the whole future development of the child. Further, we have seen that all education—all acquiring and organising of experience in early life—must be motived by the felt desire to satisfy some instinctive need of the child's nature, and that it is these instinctive needs which determine the nature and scope of his early activities.

Later, indeed, acquired interests may be grafted upon the innate and instinctive needs, but at the beginning and during his first years the child's whole life is determined by the primitive desires of human nature.

Now, the first instinctive need which requires the aid of education is the need felt by the child to acquire some measure of control over his bodily movements and over the things in his immediate physical environment. Hence the first stage in education is the regulation of the process by which the child acquires and organises those experiences which shall give him this control. Nature herself indeed provides the means for the attainment of this end, but education can do much to aid in the attainment and to shorten the period of incomplete attainment. By means of the assistance given, the control exercised and the direction afforded, we enable the child to organise the lower centres of the nervous system which have to do with the control of the larger bodily movements, and thus establish organised systems of means for the attainment of certain definite ends.

The second stage supervenes when the need is felt by the child for some measure of control over his social environment. For the young child soon realises that it is only in so far as he can exert some influence over the persons intimately connected with his welfare that he can make his wants known and find means for the satisfaction of his desires. Hence arises the need for some method of communication with his fellows, and from this springs the desire for some system of signs and for a language to enable him to make his wants known. Chiefly by means of the educative process of imitating the experiences of others, he gradually acquires a language and finds himself at home in his social world.

During this period the centres called into activity, developed, and organised are mainly those connected with the lip and speech centres, and a certain stage of organisation having been attained, the opportunity is now afforded for the fuller functional development of the higher centres entrusted with the duty of receiving, discriminating, and co-ordinating the data of the special organs of sense.

The period during which the child is gradually acquiring control over his immediate physical and social environments may roughly be said to extend to the end of his third year.

From that time onwards the worlds of nature and of society for their own sake become objects of curiosity to the child. Every new object presents him with a variety of fresh sensations. He feels, tastes, and bites everything that comes within his reach, and so acquires a world of new experiences. Hence for "the first six years of his life a child has quite enough to do in learning its place in the universe and the nature of its surroundings, and to compel it during any part of that period to give its attention to mere words and symbols is to stint it of the best part of its education for that which is only of secondary importance, and to weaken the foundations of its whole mental fabric."[33]

If, then, during this period the child is left wholly to gather his experiences as he may, he no doubt acquires by his own self-activity a world of new ideas, but the result of this unregulated process will be that the knowledge gained will be largely unsystematised, and much of the experience acquired may be of a nature which may give a false direction to his whole after-development. Hence arise three needs. In the first place, we must endeavour to see that new experiences are presented to the child in some systematic manner, in order that the knowledge may be so organised that it may serve as means to the attainment of ends, and so render future activity more accurate and more efficient. In the second place, we must endeavour to prevent the acquisition of experiences which if allowed to be organised would give an immoral direction to conduct; and in the third place, we must endeavour to establish early in the mind of the child organised systems of means which may hereafter result in the prevalence of activities socially useful to the community.

Now, these three aims are or should be the aims of the Kindergarten School, and we shall now inquire into the ends which the Kindergarten School sets before it, and for this purpose we shall state the fundamental principles which Froebel himself laid down as the guiding principles of this stage of education.



On its intellectual side the Kindergarten as conceived by Froebel has four distinct aims in view. The first aim is by means of comparing and contrasting a series of objects presented in some regular and systematic manner to lead the child to note the likenesses and differences between the things, and so through and by means of his own self-activity to build up coherent and connected systems of ideas. By this method the teacher builds up in the mind of the young child systems of ideas regarding the colours, forms, and other sense qualities of the more common objects of his environment. The second aim is by means of some form of concrete construction to give expression to the knowledge so gained, to make this knowledge more accurate and definite, and thus by a dialectical return to make the experiences of the child definite and accurate, so as to render future action more efficient, and thus pave the way for further progress. The third aim is to utilise the play-activity of the child in the acquisition of new experiences and in their outward concrete expression. The fourth is to engage the child in the production of something socially useful, something which engages his genuine work-activity. In short, what Froebel clearly realised was that the mere taking in of new experiences by the child mind in any order was not sufficient. Experiences to be useful for efficient action must be assimilated—must be organised into a system—and in order that this may be possible the experiences must be presented in such a manner as will render them capable of being organised. Moreover, this mere taking in of new experiences is not enough. There must be a giving out or expression of the knowledge acquired, for it is only in so far as we can turn to use new experiences that we can be sure that they are really ours. Now, since the forms of expression natural to the young child are those which evoke his practical constructive efforts, all outward expression in its earlier stages must assume a concrete form. The aim of the so-called "Gifts" in Froebel's scheme is to build up an organised system of sense-knowledge; the aim of the "Occupations" of the Kindergarten is to develop the power of concrete expression of the child. The "Gifts" and the "Occupations" are correlative methods,—the one concerned with the taking in, the other with the outward expression of the same experience,—and throughout either aspect of the process the reason-activity of the child must be evoked both in the acquisition and in the expression of the new experience. Physiologically, this twofold process implies that during the Kindergarten period the sensory areas of the brain are being exercised and organised and that the associative activity evoked is concerned with the co-ordination of the impressions derived through these areas. Psychologically, it implies that during this period we are mainly concerned with the formation of perceptual systems of knowledge composed of data derived through the special senses and through the active movements of the hands and limbs. Such a process, moreover, is a necessary preliminary for the full after-development of the higher association centres of the brain and for the formation by the mind of conceptual systems of knowledge.

For if we attempt prematurely to exercise the higher centres before the lower have reached a certain measure of development, if we attempt to form conceptual systems of knowledge, such as all language and number systems are, without first laying a sound perceptual basis, then we may do much to hinder future mental growth, if we do not even inflict a positive injury to the child. For the education of the senses neglected, "all after-education partakes of a drowsiness, a haziness, and an insufficiency which it is impossible to cure."[34]

On its moral and social side the aims of the Kindergarten School are no less important. If left to follow the naive instinctive needs of his nature and to gather experiences where and how he may, the child is likely to make acquisitions which later may issue in wrong conduct. Hence one aim of the Kindergarten is to present experiences which may eventually issue in right conduct, and to prevent the acquisition of experiences of an immoral kind. Hence also its insistence upon the need of carefully selecting the environment of the young child, so that as far as possible its early experiences—its first acquisitions—shall be of a healthy nature. Moreover, by means of the organised activities of the school, and by utilising the play-instinct of the child, it seeks to form and establish certain habits of future social worth to the community and to the individual. For, by means of the games and occupations of the Kindergarten School, the child may first of all learn what it means to co-operate with his fellows for a common end or purpose; may learn to submit to authority which he dimly and imperfectly, it may be, perceives to be reasonable; may be trained to habits of accuracy, of order, and of obedience. Above all, the Kindergarten system may rouse and foster in the mind of the child that sense of a corporate life and of a common social spirit the prevalence of which in after-life is the only secure foundation of society.

In England the extreme importance of the education of the infant mind has been, in recent years, clearly acknowledged. The new regulations of the Board of Education no longer allow children under five years of age to be included as "an integral part of a three-R grant-earning Elementary School." A special curriculum has been set forth for their education. They are to have opportunities provided "for the free development of their bodies and minds and for the formation of habits of obedience and attention."[35] What are known as "Kindergarten Occupations are not merely pleasant pastimes for children: if so regarded, they are not intelligently used by the teacher. Their purpose is to stimulate intelligent individual effort, to furnish training of the senses of sight and touch, to promote accurate co-ordination of hand movements with sense impressions, and, not least important, to implant a habit of obedience."

"Formal teaching, even by means of Kindergarten Occupations, is undesirable for children under five. At this stage it is sufficient to give the child opportunity to use his senses freely. To attempt formal teaching will almost inevitably mean, with some of the children, either restraint or over-stimulation, with constant danger to mental growth and health."[36]

From these extracts from the Suggestions for the Consideration of Teachers of the Head of the English Board of Education, it will be evident that the spirit of the "Kindergarten" now largely enters into the curriculum of the infant classes. In the future we may hope to see it carried further and that no formal teaching of the child will be undertaken during the first six years of his life. Further, we may hope to see in the future the infant departments of our schools more thoroughly organised than they are at present on the Kindergarten principle, and the curriculum of the Infant School so devised that it shall fit into and pave the way for the curriculum of the Elementary School. For at the earlier stage much may be done by the methods of the Kindergarten to lay the basis for the teaching of the arts of reading, writing, and arithmetic which it is the main business of the Primary School to lead the child to acquire. E.g., at the earlier stage, by the breaking up and reconstructing of concrete groups of things, the child can be initiated into the meaning of a number system. By means of pictures and of concrete forms he can be made gradually acquainted with alphabetic forms, and this teaching lays the basis for the future acquisition of the abstract symbols of printed and written words.


But while much has been done in England to recognise the importance of the early education of the child for the after moral and social good both of the individual and of the community, and to place the instruction of the infant classes in the Public Elementary Schools upon a rational basis, little attention has been paid in Scotland to this subject. As a rule, children in that country do not enter school before the age of five, and there is no separate provision made for the teaching of children under that age; in fact, all scholars under seven years of age are classified together and form the Junior Division of the school.

Such a state of matters reflects but little credit on the educational leaders of Scotland, and indicates an imperfect conception of the real nature of the educative process. For if education is the process of acquiring and organising experiences in order to render future action more efficient, it is surely the height of folly to allow the young child to gather his early experiences as he may. Moreover, in the case of the children of the slums, to allow them during their early years to gather into their brain without any correcting agency "all the sights and scenes of a slum is sheer social madness." "The child must be removed, or partially removed, from such an atmosphere, since it has reached the imitative stage, and is nearing the selective stage of life. For the moment he imitates anything; presently he will imitate what pleases him, what gives him momentary pleasure. Before the unmoral selective stage is reached, the stage which inevitably precedes the moral and immoral selective stage, it is essential that children should receive definite and deliberate guidance, that the imitative faculty should be controlled."[37] In the case of the children of the poorer districts this can be done only through the agency of the Infant School. Much may be done by making the instruction of the school attractive, to counteract the evil influences of the home and social environment, and to lead the child to acquire and organise experiences which will issue in moral and not in immoral conduct.

Hence what we need in the poorer districts of our large towns is Free Kindergarten Schools from which all formal teaching of the three R's is abolished, where for several hours in each day the child may be trained to use his senses in the accurate discrimination and accurate systematisation of sense knowledge; where he may have his constructive activities evoked by the expression in concrete form of what he has been led to perceive through the medium of the senses; where he may be trained to habits of order, of cleanliness, of submission to authority; and where for a time, at least, he may be accustomed to live in a purer and healthier atmosphere than he can find at home or in the street, and where for a brief space he may have that feeling of home which he cannot find at home.[38]

The establishment in the poorer districts of our great towns of schools whose education follows the method of the Kindergarten if accompanied by some system of feeding the child would do much to secure the after social efficiency of the rising generation, and would by its reaction on the home-life tend gradually to raise the ideals of the very poor.
FOOTNOTES:

[33] The Nervous System and Education, by Sir James Crichton Browne, ibid. p. 345.

[34] The Nervous System and Education, by Sir James Crichton Browne, ibid. p. 345.

[35] Cf. on this subject the chapter on "School Nurseries" in National Education and National Life, ibid.

[36] Suggestions for the Consideration of Teachers, chap. iii. (issued by the English Board of Education).

[37] Montmorency's National Education and National Life, ibid. p. 143. The chapter on "School Nurseries" should be read by everyone, and especially by every Scotsman interested in the education of young children.

[38] Cf. Charles Lamb's Essay on Popular Fallacies.

The Organisation of The Means of Education

The Organisation of The Means of Education

Throughout we have assumed that it is the duty of the State to see to the adequate provision, to the due distribution, and to the proper co-ordination of all the agencies of education, and we have taken up this position mainly on the ground that neither the adequate provision nor the proper co-ordination of the means of education can be safely left to the self-interest of the individual or any group of individuals. If left to be accomplished by purely voluntary agencies, both the provision and the co-ordination will remain imperfect, and as a nation we can no longer neglect the systematic organisation and grading of the means of education.

But a misapprehension must first be removed. In declaring that all the agencies of formal education should be under control of the State, it is not to be inferred that this control should be bureaucratic. In many minds State control is synonymous with government by inspectors and other officials of the central authority. But bureaucratic control in a nation whose government is founded on a representative basis is a disease rather than a normal condition of such government. In a country where the sovereign power is vested in an individual or in a limited number of individuals, bureaucratic control is and must be an essential feature of its government. On the other hand, where the government is founded upon the representative principle, the appearance of bureaucracy is an indication of some imperfection in the organisation of the State itself. The introduction of the representative principle may have been too premature or its extension too rapid, and as a consequence the government of the people by themselves is ineffective through the general want of an enlightened self-interest amongst the majority of the nation. In such a condition of affairs, if progress is to be made, it can only be accomplished effectively through an enlightened minority forcing its will upon the unenlightened and ignorant majority, and as a result we may have the creation of an army of official inspectors whose chief duty becomes to secure that the will of the central authority is realised. In such a condition of things the tendency ever is for more and more power to fall into the hands of the permanent officials.

But this condition of things may arise in a government founded upon the representative principle in another way. The organs through which the will of the people makes itself known may be imperfect, so that as a consequence it fails to find adequate expression, or its expression is felt only at infrequent intervals. If, for example, the central authority is so overburdened with work that little or insufficient attention is given to many matters of supreme importance for the welfare of the nation, then it follows that more and more power will pass into the hands of its executive and advisory officers. This condition of things will be further intensified if the governing bodies charged with the local control of national affairs are too weak or too unenlightened to make their voice effective. Now, the tendency to the bureaucratic control of the educational affairs of our own country may be traced to all three causes. The want of an enlightened self-interest in the matter of education amongst a large number of the people, the ineffectiveness of Parliament to deal thoroughly with purely educational questions, and the weakness in many cases of the local governing bodies have all contributed to the gradual creation of the bureaucratic control of education in Great Britain. But this form of control is not entirely evil, and in certain cases it may be a necessary stage in the development of a democracy passing from unenlightenment to enlightenment. The remedies for this imperfection, this disease of representative government in the matter of educational control, are (1) the spread of a more enlightened self-interest as to the value of education as a means of securing the social efficiency of the nation and of the individual, (2) the effective control of education by the central authority, and (3) the strengthening of the local authorities by devolving upon them more and more important educational duties. By this means the control of education by the State will become more and more the control of the people by themselves and for themselves, and the chief function of officials and inspectors will then be to advise central and local authorities how best to realise the educational aims desired by the common will of the people.

Let us now consider the main principles which should guide the State in her organisation of the means of education.

In the first place, and upon this all are agreed, the control of all grades of education, primary, secondary, and technical, should be entrusted to one body in each area or district. For there can be no co-ordination established between the work of the various school agencies, and there can be no differentiation of the functions to be undertaken by the various types of school, until there has been established unity of control.

In England, by the Act of 1902, a great step was taken towards the unification of all the agencies of education. According to its provisions, the School Board system was abolished. "Every County Council and County Borough Council, and the Borough Councils of every non-county borough with a population of over 10,000, and the District Council of every urban district with a population over 20,000, became the local education authority for elementary education, while the County Council and the County Borough Council became the authorities for higher education, with the supplementary aid of the Councils of all non-county boroughs and urban districts." By this means the unification of educational control has been realised, and already in many districts of England much has been done to further the means of higher education and to co-ordinate this stage with the preceding primary stage.

In Scotland the question of the extension of the area of educational control and of the unification of the various agencies directing education still awaits solution. Several plans have been put forward to effect these ends.[23]

In the first place, it has been proposed to retain the present parish School Boards for the purpose of elementary education, and to combine two or more School Boards for the purposes of providing secondary and technical education. This plan, however, meets with little favour. It would be difficult to carry into practice, and if realised would imperfectly fulfil the end of co-ordinating the work of the various school agencies. Its only recommendations are its apparent simplicity, and the fact that it could be carried out with the least possible change in the existing conditions.

In the second place, it is proposed to retain the School Board system, but to extend the area over which any particular educational authority exerts its control, and to place under its direction all grades of education. In the practical carrying out of this plan the present district areas of counties selected for other purposes have been proposed as educational units. On the other hand, it has been declared that in many cases these areas are unsuitable for educational purposes, and it has been proposed that new areas should be delimited for this purpose.

The chief merit, if it be a merit, of this plan is the retention in educational control of the ad hoc principle—i.e., of the principle of entrusting one single national interest to a body charged with the sole duty of conserving and furthering the interest. The only reasons advanced are the great importance of the educational interest and the fear that if it is entrusted to bodies charged with other duties this interest may tend to be neglected. But although both sentiment and the interests of political parties are involved in the advocacy of the ad hoc principle, it must be kept in mind that the School Board system in Scotland is universal and that the difficulties of the system which prevailed in England before its abolition do not exist in Scotland. As a consequence, it has been much more effective in Scotland than in England, and has a much firmer hold on the sentiments of the people.

In the third place, it has been proposed to hand over the educational duties of the country to the County Councils and to the Burgh Councils of the more important towns, to adopt, in principle, a system of educational control similar to that established in England by the Act of 1902.

Many reasons may be urged for the adoption of the last-named plan, and we shall briefly state the more important.

1. An ad hoc authority by its very nature is necessarily weaker than an authority entrusted not merely with the care of a single interest but with the care of the public interests as a whole. If there is to be decentralisation of any part of the functions of the central authority, then any form of decentralisation which consists in the handing over of particular interests to different local bodies, however it may be for the advantage of the particular interest is radically bad for the general interests of the community. The calling into existence of a number of local authorities each having the care of one particular interest, each pursuing its own aim independently and without consideration of the differing and often conflicting aims of the other bodies, each having the power of rating for its own particular purpose without any regard for the general interest of the taxpayer, is radically an unsound form of decentralisation.

2. The establishment of such a form of control fails, and must necessarily fail, in the local authorities securing the maximum of freedom and the minimum of interference from the executive officers of the central legislative authority. So long as the separate interests of the community are entrusted to different local authorities, so long must there remain to the central authority and to its executive officers the power of regulating and harmonising the various and often contending interests so as to secure that the general interest of the individual does not suffer, and the more keenly each particular body furthers the particular interest entrusted to its care the greater is the necessity for this central control and interference, and that the central control should be effective.

3. The separation of the so-called educational interests from the other interests of the community is not for the good of education itself. The real educational interests which have to be determined by the adult portion of the community are the exact nature of the services which a nation such as ours requires of its future members. This determined, the method of their attainment is best entrusted to the educational expert. The first-named end will be better realised by a body composed of men of diverse interests than by one which is made up of men with one intense but often narrow interest.

4. The larger the powers entrusted to any body and the more freedom possessed by it in devising and working out its schemes, the better chance there is of attracting the best men in the community to undertake the work.

5. It is questionable whether the interests of the teacher would not be better furthered by a local authority entrusted with the care of the interests of the community as a whole than by a body having charge of education alone. Men entrusted with the larger interests of the community are usually more ready to take wider views than the man who is narrowed down to one interest. As a rule, they know the value of good work done, and are ready and willing to pay for it wherever they find it.

6. Lastly, we may urge the test of practical experience. In England, and especially in London, since the control of education has passed into the hands of the County Councils a great advance has been made both in the furthering and in the co-ordination of the means of education.

Whether ultimately the control of education be vested in District School Boards or in the County and Burgh Councils, one reform is urgently needed in Scotland, and this is the extension of the area of educational control, under a strong local authority, and with the entire control of elementary, secondary, and technical education.

In the second place, whatever the area of control chosen it should be of such a nature as to admit within its bounds of schools of different grades and of different types, so that children may pass not only from the Elementary School to the Secondary, but may pass to the particular type of Secondary or Higher School which is best fitted to prepare them for their future life's work. In many cases, in Scotland, we cannot make the same clear distinction between the various types of school as they do in Germany, but must remain content with the division of a school into departments; yet in our large towns and in our most populous centres of industry we must establish schools of different types and with differing particular ends in view.

The third principle of organisation follows from the second. We must see that our educational system is so organised as to provide an efficient and sufficient supply of all the services which the community requires of its individual members. In particular, our Higher School system must be designed not merely for the supply of the so-called learned professions, but must also make due and adequate provision for the training of those who in after-life are destined for the higher industrial and commercial posts. In particular, we must see that there is due provision of Trade and Technical Schools, where our future artisans may become acquainted with the theoretical principles underlying their particular art.



Fourthly, we must endeavour to make our Elementary School system the basis and point of departure of all further and higher education. This would not involve that every child should be educated at a Primary and State-aided School, but it does mean and would involve that the Preparatory departments of our present Secondary Schools should model their curriculum on the lines laid down in our Elementary Schools.

Fifthly, in the organisation of the means of education, our system, as we have already pointed out, must be democratic in the sense that the means of higher education shall be open to all, rich and poor, in order that each may be enabled to find and thereafter to fit himself for that particular employment for which by nature he is best suited. It must further be aristocratic in the sense that it is selective of the best ability; and finally, it must be restrictive in order that the means of higher education may be utilised to the best advantage, and not misused on those who are unfitted to benefit therefrom.

Unity of control; adequacy of area; schools of various types, sufficient in number, and suited to meet the need for the supply of the various services required by the State; a common basis in elementary education; means of higher education open to all who can profit thereby; selection of the best; restriction of those unable to benefit from higher education—these are the principles which must in the future guide the State organisation of the means of education.
FOOTNOTE:

[23] For a fuller discussion of this question, see Scotch Education Reform, by Dr. Douglas and Professor Jones (Maclehose).

The Relation Of The State To Education—The Feeding Of School Children

A much more important and far-reaching question than that of the State provision for the medical examination and inspection of children attending Public Elementary Schools is the question of whether, and to what extent, the State should undertake the provision of school meals for underfed children.

Of the existence of the evil of under and improper feeding of children, especially in many of our large towns, there is no doubt. The numerous voluntary agencies which have been brought into existence to cope with the former are sufficient evidence that the evil exists and that it is of a widespread nature. Again, the high rate of infant mortality amongst the children of the lower classes is largely due to ignorance on the part of parents of the nature and proper preparation of food suitable for children. Further, the social conditions under which many of the poor live in our large towns is a contributing cause of this improper feeding. In many cases there is no adequate provision in the home for the cooking and preparation of food, and in others the absence of the mother at work during the day necessitates the children "fending" for themselves in the providing of their meals. However, in considering this question we must carefully distinguish between three distinct causes operating to produce the condition of underfeeding, and as a consequence resulting in three distinct classes of underfed children. As the causes or groups of causes are different in nature,so the remedies also vary in character. Moreover, in many cases we find all three causes operating, now one and now the other, to produce the chronic underfeeding of the child.

In the first place, the underfeeding of the child may arise through the temporary poverty of the parent due to his temporary illness or temporary unemployment. In normal circumstances, in these cases relief is best afforded by means of the voluntary agencies of society. In abnormal circumstances, such as are caused by a widespread depression of industry, the evil may be met by a special effort on the part of the voluntary agencies or by municipalities or other bodies providing temporary relief-work.

In the second place, the underfeeding of the child may be due to the chronic and permanent poverty of the parent. The wages of the breadwinner even when in full work may be insufficient to afford adequate support for a numerous family. This condition of things is not peculiar to Great Britain, but is a common characteristic in the life of the poor of all civilised nations. This is where the real sting of the problem of underfeeding lies, and the causes at work tending to produce this condition of things are too deep-seated and too widely spread to be removed by any one remedy. Moreover, in endeavouring to cure this disease of the Commonwealth we are ever in danger of perpetuating and intensifying the causes at work tending to produce the evil.

In the third place, the underfeeding of the child may arise through the indifference, the selfishness, or the vice of the parents. In such cases the parents could feed their children, but do not. Manifestly in cases of this character there is no obligation placed upon the State and no rightful claim upon any charitable agency to provide food for the children. To give aid simply weakens further the parental sense of responsibility, and leaves a wider margin to be spent on vicious pleasures. But while there is no obligation placed upon the State to provide the necessaries of life for the child, there is need and justification in such cases for the intervention of the State. There is need, for otherwise the child suffers through the criminal neglect of the parents, and the community must interfere for the sake of the future social efficiency of the individual and of the nation. There is justification, for here as in the case of the parents of the morally defective, parental responsibility has either ceased to act or become too weak a motive force to be effective in securing the welfare of the child. As the individual parent neglects his duty, so and to the corresponding degree to which this neglect extends, must the duty be enforced by the State. But in the enforcing of this or of any duty we must be quite sure that the neglect is really due to the weakened sense of responsibility of the parent, that it is a condition of things which he could remove if he had the moral will to do so, and that the neglect is not due to causes beyond the power of the parent to remove.

Cases in which there is culpable neglect of the child due not to poverty, but to the fact that the money which should go to the proper nutrition of the child is squandered in drink, or on other enervating pleasures, are therefore cases in which recourse must be had to measures which enforce upon the parent the obligation to feed and clothe his children. The really difficult question is as to the best means of enforcing this obligation. Manifestly to punish by fine or imprisonment does little in many cases to alleviate the sufferings of the children. The punishment falls upon them as well as upon the parent, and where the latter is dead to, or careless of, the public opinion of his fellows, it fails to initiate that reform of conduct which ought to be the aim of all punishment. If indeed by imposition of fine, or by imprisonment, the individual realises his neglect of duty, repents, and as a consequence reforms, then good and well, but as a rule the neglect of the child is in such cases a moral disease of long standing and not easily cured, and so we find often that neither punishment by fine nor imprisonment, even when repeated several times, is effective in making the parent realise his responsibility and reform his conduct. All the while the child goes on suffering. He is no better fed during the period of fine or imprisonment, and the wrath of the parent is often visited upon his unoffending head.

The second method of cure proposed is to feed the children at the public expense and to recover the cost by process of law. But the practical difficulties in carrying out this plan are similar in kind to those formerly experienced in the recovery of unpaid school fees. The cost of recovering is often greater than the expense involved, and as a consequence local authorities are not inclined to prosecute. Further, there is the difficulty of discriminating between underfeeding due to wilful and culpable neglect and underfeeding due to the actual chronic poverty of the parent. If this plan is to be effective, some simpler method of recovery of cost than that which now prevails must be adopted. E.g., it might be enacted that the sum decreed for should be deducted from the weekly wages of the parent by his employer. Here again many difficulties would present themselves in the carrying out of this plan. In the case of certain employments this could not be done. In other cases, employers would be unwilling to undertake the invidious task. Moreover, the cost of collection might equal or be greater than the cost incurred. Above all, such a method would do little to alleviate the sufferings and better the nutrition of the child. In most cases the school provides but one meal a day. Experience has shown that in the case of children of the dissolute the free meal at the school means less food at home. Were the cost deducted from the weekly wages of the parent, the result would be intensified. So great have been the difficulties felt in this matter that with one or two exceptions no foreign country has made the attempt to recover the cost of feeding from the parent. Yet the disease requires a remedy. The evil is too dangerous to the future social welfare of the community to be allowed to go on unchecked and unremedied. Moreover, to endeavour to educate the persistently underfed children of our slums is to do them a twofold injury. By the exercises of the school we use up, in many cases, with little result, the small store of energy lodged in the brain and nervous system of the child, and leave nothing either for the repair of the nervous system or for the growth of his body generally. We prematurely exhaust his nervous system, and by so doing we hinder his bodily growth and development. To make matters worse, we often insist that the child in order to aid his physical development must undergo an exhausting system of physical exercises when what is most wanted for this purpose is good and nourishing food and a sufficiency of sleep. At the same time that we are neglecting the nutrition of his body we are spending an increasing yearly sum on the so-called education of his mind. What, then, is the remedy? If fining and imprisonment of the parent only accentuate the sufferings of the child, if they fail to make the parent realise his responsibility and reform his conduct, if the provision of a free meal at school means less food at home, then there is only one thorough-going remedy for the evil, and that is to take the child away from the parent, to educate and feed him at the public expense, and to recover the cost as far as possible from the parent. In Norway this drastic method has been adopted. Under a law passed on the 6th January 1896, the authorities are empowered "to place neglected children in suitable homes or families at the cost of the municipality, the parent, however, being liable, if called upon, to defray the cost."[20]

The reasons for taking this extreme step are obvious. By no method of punishing the persistently dissolute and neglectful parent can you be assured of securing the proper nutrition and welfare of the child. Parental affection in these cases is dead, and parental responsibility for the present and future welfare of the child has ceased to act as a motive force. As a consequence, the child grows up to be, at best, socially inefficient, and liable in later life to be a burden upon the community. In many cases, the evil and sordid influences of his home and social environment soon check any springs of good in his nature, and more than likely he becomes in later life not merely a socially inefficient member of the community but an active socially destructive agent. Hence, on the ground of the future protective benefit to society, on the ground of securing the future social efficiency of the individual, on the ground that it is only by some such system we can ever hope to raise the moral efficiency of the rising generation of the slums, the method above advocated is worthy of consideration.

Against the adoption of such a method of treatment of the dissolute parent many objections may be urged, and it would be foolish to minimise the dangers which might follow its systematic and thorough carrying into practice. But the possible injury to the community through the weakening of the sense of parental responsibility seems to me small in comparison with the future good likely to result from the increased physical, economic, and ethical efficiency of the next generation which might reasonably be expected to follow from the rigorous carrying out of such a plan for a time. The fear lest a larger and larger number of parents might endeavour to rid themselves of the direct care of their children, if this plan were adopted, need not deter us. If this plan were carried into practice, then some extension of the scope of the Industrial Acts would be rendered necessary, and some such extension seems to have been in the minds of the Select Committee in their Report on the Education (Provision of Meals) Bill, 1906, in considering their recommendations.[21]

But the importance of the two classes of cases already considered sinks into comparative insignificance compared with the third class of cases. Temporary underfeeding caused by temporary poverty can be met in many ways without to any appreciable degree lessening the sense of the moral obligation of the parent to provide the personal necessities of food and clothing for his children. In the case, again, of the persistently dissolute and neglectful parent, moral considerations have ceased to operate, and so the individual by some method or other must be forced to perform whatever part of the obligation can be exacted from him.

But in the third class of cases parental responsibility may be an active and willing force, yet the means available may be so limited in extent that the child is in the chronic condition of being underfed. No one who carefully considers the information recently supplied by the Board of Education as to the methods of feeding the children attending Public Elementary Schools in the great Continental cities and in America can arrive at any other conclusion than that here we are in the presence of an evil not local but general, and apparently incidental to the organisation of the modern industrial State. For whether by voluntary agencies, by municipal grants, or by State aid, every great Continental city has found it necessary to organise and institute some system of feeding school children.

The only inference to be drawn from such a condition of things is that in a large number of cases the normal wages of the labourer are insufficient to maintain himself and his family in anything like a decent standard of comfort. How large a proportion of the population of our great cities is in this condition it is difficult exactly to estimate, but there is no doubt that a very considerable number of cases of the chronic underfeeding of school children may be traced to the insufficiency of the home income to support the family. The moral obligation to provide the personal necessities of food and clothing for his children is active, but the means for the realisation of the obligation cannot be provided in many cases the endeavour fully to meet the needs of the child results in the lessened efficiency of the breadwinner of the family.

The real causes at work tending to keep the wages of the unskilled labourer ever hovering round a mere subsistence rate must be removed, if anything like a permanent cure of this social evil is to be effected. We must endeavour on the one hand to lessen the supply of unskilled labour. By so doing the reward of such labour will tend to be increased materially. On the other hand, we must during the next decade or two endeavour by every means in our power to ensure that a larger and larger number of the children of the very poor shall in the next generation pass into the ranks of skilled labour.

But in the meantime something must be done. The children are there; they still suffer; and their wrongs cry aloud for redress. It is certainly true that any aid given to the child will tend meanwhile to keep the wages at bare subsistence rates. It is also true that the distribution of relief only tends to make the poor comfortable in their poverty, instead of helping them to rise out of it. All this and much more might be urged against the demand to institute and organise the systematic public feeding of school children. But these evils are evils which fall upon the present adult population. Education has, however, to do with the future, with the next generation and not with this. Its aim is to secure that as large a number as possible of the children of the present generation will grow up to be economically and ethically efficient members of the community. To secure this end the problem of underfeeding is only one of the problems that must be solved. If we adopt some systematic plan for securing the full nutrition of the children of the present, this must go hand in hand with other remedies. During the stage of transition we shall have to take into account that for a time the wages of the poorest class of labourer will tend to remain at their present low rate; we shall have to face the danger that by giving such aid we may in some cases still further weaken the sense of moral obligation of the parents of the present generation. If, on the other hand, we do nothing, or if we look to the present voluntary agencies to go on doing what they can to remedy the evil, what then? Will the evil be lessened in the next generation? Assuredly not, if the experience of the present and of the past are safe guides as to what we may expect in the future.

Hence we have no hesitation in urging that the feeding of children attending the Public Elementary Schools should be organised on lines similar to the recommendations laid down in the Special Report from the Special Committee on Education (Provision of Meals) Bill, 1906.[22]

But if we carry out these recommendations and do nothing else, then it may be that we shall partially remedy the evil in the next generation, but we shall to a large extent perpetuate the present condition of things. Side by side with this, we must institute and set other agencies at work. By the institution of Free Kindergarten Schools in the poorer districts of our large towns, by postponing the beginning of the formal education of the child to a later age, by a scientific course of physical education, by better trade and technical schools, and if need be by the compulsory attendance of children at evening continuation schools, we must bend our every effort to secure that the ranks of the casual, the unskilled, and the unemployable shall be lessened, and the ranks of the skilled and intelligent worker increased.

As the freeing of elementary education can be justified on the ground that the education of the child is necessary for the future protection of the State, so on similar grounds it may be urged that the nutrition of the child is also necessary. Without this our merely educational agencies can never adequately secure the social efficiency of the coming generation. At the same time, unless in the future the need for free education and free food becomes less and less, and unless by the means sketched above we rear up a generation economically and morally independent, then truly we have not discovered the method by which man can be raised to independence and rationality.
Appendix

Recommendations of the Select Committee on Education (Provision of Meals) Bill, 1906.

"The evidence, verbal and documentary, placed before the Committee has led them to arrive at the following general conclusions:—

"1. That it is expedient that the Local Education Authority should be empowered to organise and direct the provision of a midday meal for children attending Public Elementary Schools, and that statutory powers should be given to Local Authorities to establish Committees to deal with school canteens.

"2. That such Committees should be composed of representatives of the Local Education Authority, representatives of the Voluntary Subscribers, and where thought desirable a representative of the Board of Guardians, and of the local branch of the Society for the Prevention of Cruelty to Children, where such exists. That the Head Teacher, the School Attendance Officer, and the Relieving Officer should work in association with such Committee.

"3. That power should be given for the Local Education Authorities, when they deem it desirable, to raise loans and spend money on the provision of suitable accommodation and officials, and for the preparation, cooking, and serving of meals to the children attending Public Elementary Schools.

"4. That only in extreme and exceptional cases, where it can be shown that neither the parents' resources nor Local Voluntary Funds are sufficient to cover the cost, and after the consent of the Board of Education as to the necessity for such expenditure has been obtained, a Local Authority may have recourse to the rates for the provision of the cost of the actual food; the local rate for this purpose to in no case exceed 1/2d. in the £.

"5. That the Local Education Authority should, as far as possible, associate with itself, and encourage the continuance of, voluntary agencies in connection with the work of feeding of children.

"6. That whatever steps may be necessary, by way of extension of the Industrial Schools and the Prevention of Cruelty to Children Acts or otherwise, should be taken to secure that parents able to do so and neglecting to make proper provision for the feeding of their children shall be proceeded against for the recovery of the cost; and that the Guardians, or where available the Society for the Prevention of Cruelty to Children, and not the Local Education Authority, be empowered to prosecute in any cases coming under the law in respect to the neglect of parents to make proper provision for the feeding of their children.

"7. That payment for meals, prior to the meal, whenever possible, should be insisted upon from the parents.

"8. That it is undesirable that meals should be served in rooms habitually used for teaching purposes, and that the Regulations of the Board of Education should carry this recommendation into effect.

"9. That whilst strong testimony has been placed before the Committee to the effect that the teachers have given and are giving admirable service in the way of supervising the provision of meals to the children, it is the opinion of the Committee that it ought not to be made part of the conditions attaching to the appointment of any teacher that he (or she) shall or shall not take part in dispensing meals provided for the children, and that the Board of Education should carry this recommendation into effect."

FOOTNOTES:

[20] Cf. Underfed Children in Continental and American Cities (presented to Parliament, April 1906).

[21] Cf. Report on Education (Provision of Meals) Bill, especially Recommendation 6, Appendix, p. 75.

[22] Cf. Appendix, p. 75.