5. Of the boys who, engaged in unskilled work during the day, are anxious to continue their general education or to improve their position, the evening school again supplies the need. Some practical work is done in the woodwork or metal centres, but the limited equipment of the elementary school stands in the way of any advanced technical instruction. If we omit the commercial classes, already mentioned, attendance at an evening school often means little more than attendance once a week at a class where instruction is given in a single subject, and not infrequently the recreative element is predominant. Recently, and with considerable success, the “course” system has been introduced. Here the students, instead of being present at a single class once a week, attend on several evenings during the week, and go through a course of instruction in several subjects connected together and leading up to some definite goal.
If to these various types of continuation school we add the large number of lectures on numerous subjects, we shall see that the State through its schools supplies a considerable amount of technical instruction. It would be false to say that the boys receive all the training that they need, but it would not be beyond the mark to assert that in the case of many education authorities they are afforded all, and not infrequently more than all, the opportunities for which they ask. It is the demand, and not the supply, that is deficient.
III.
State Provision of an Opening.
Until the year 1910 the provision of openings in suitable occupations was not considered among the duties of the State. It is true that here and there, usually in co-operation with voluntary associations, an education committee made some attempt to place out in trades the boys about to leave school. But any expenditure in this direction was illegal, and under no circumstances was it possible to do anything for those who had already left school. But in the year 1910 the State, without premeditation, has found itself committed to the duty of finding openings for children and juveniles. The revolution was upon us before we had seen the signs of its approach.
This assumption of a new duty was the unforeseen result of the establishment of Labour Exchanges. The Act of 1909 thought nothing, said nothing, about juveniles. It was passed as a measure intended to deal with the problem of adult unemployment. Now, there is no problem of unemployment in connection with boys and youths; the demand of employers for this kind of labour appears insatiable. Nevertheless, no sooner were Labour Exchanges opened, than the question of juveniles came to the front. Employers asked for juveniles, and the managers of the local Labour Exchange, eager to meet the wishes of the employer, searched for and found juveniles. Enthusiastic about his work, and prompted by the laudable desire to show large returns of vacancies filled, it did not occur to him that the problem of the juvenile and the problem of the adult had little in common. He was not permitted to remain long in this condition of primitive ignorance. Questions were asked in the House, letters were written to the papers, deputations waited on the President of the Board of Trade, all complaining that the Labour Exchange was becoming an engine for the exploitation of boy labour. In the case of adults, no bargain as to conditions was struck with the employer; the man had to make his own terms. But the boy could not make his own terms, and public opinion had for some years been uneasy about the increasing employment of boys in occupations restricted to boys, and leading to no permanent situation when the years of manhood were reached. Returns showed that it was largely into situations of this character that lads were being thrust by the Labour Exchange. The Board of Trade rapidly realized the evil, and set itself to work to repair the unforeseen mistake. It wisely decided to grapple seriously with the problem, and did not, as it might well have done, restrict the Labour Exchange to adults.
It determined to appoint Advisory Committees to deal with juveniles. In London the following machinery is in process of being established: There is a Central Advisory Committee, consisting of six members nominated by the Board of Trade, six by the London County Council, and six by the committee of employers and trade unionists, who advise the Board of Trade on questions of adult employment. The duty of this Central Committee is to advise the Board of Trade as to the appointment of the local Advisory Committees, which will be formed to control the juvenile department in connection with each of the London Labour Exchanges. It will also be the duty of the Central Advisory Committee to advise generally on questions affecting the employment of juveniles. Though the duties of this committee are nominally advisory, its work will in practice become administrative in character. Here then is an organization which in course of time will probably have to deal with the problem of finding suitable occupations for the child and juvenile population of London. Similar bodies are being formed in other towns. As will appear later, this is one of the most important social questions of the day. How these committees will do their work only the future can show. But if the Board of Trade act liberally in matters of expenditure, there is no cause for despondency, and we may well hope that, by the purest of accidents, we are on the threshold of a new era in the history of industrial organization. Chance is not always blind, and some of its wild castings hit the mark.
Such, in broad outline, have been the achievements of the State during the age of reconstruction, so far as concerns the problem of boy labour and apprenticeship. Guided by sentiment, partial and limited in the sphere of its operations, the State has yet drifted far from the moorings of laissez-faire, and is destined to drift farther as the years go by.
How far the intricate machinery, slowly pieced together during the last three-quarters of a century, is successful when judged by results, what are its more serious defects, and what should be the lines of future advance, before the establishment of a real apprenticeship system, it will be the object of the following chapters to explain. But one truth should now be abundantly clear: of the three essential factors of that system, not one has been altogether neglected by the State, and in certain departments its guardianship has been widely extended. In the department of supervision it has, through its schools, created an organization to watch over and to control the conduct of all its children; it has recently recognized through the same agency its duty to provide for them at least the elements of physical well-being; and through numerous Acts it has endeavoured to insure for the boy worker a minimum standard—low, indeed, but still real—of proper conditions of employment. In the department of training it has covered the land with a network of educational institutions, which offer to all the possibilities of nearly every kind of instruction. While, as regards the provision of an opening, it has realized the urgency of the problem, and has taken the first steps to supply the deficiency. These are all, in spite of many shortcomings, solid achievements, hopeful in the present, and more hopeful for the promise they bring of a larger measure of State guardianship in the years that are to come.