A STÏÏDY OF SURVEY MAGAZINE AND NATIONAL

CONFERENCE OF SOCIAL WORK MATERIAL ON WAR

RELATED PROBLEMS DURING THE FIRST YEAR OF

WORLD WAR I AND WORLD WAR II

A THESIS

SUBMITTED TO THE FACULTY OF ATLANTA UNIVERSITY SCHOOL

OF SOCIAL WORK IN PARTIAL FULFILLMENT OF THE REQUIREMENTS

FOR THE DEGREE OF MASTER OF SOCIAL WORK

BY

FRANCES MARIE JORDAN

SCHOOL OF SOCIAL WORK

ATLANTA, GEORGIA

MAY 1944 ii

TABLE OF CONTENTS

Chapter Page

I. INTRODUCTION ...... 1 The Purpose of the Study ..... 5 The Scope of the Study ...... 5 The Method of the Study ...... 5

II. THE ORIGIN AND EARLY DEVELOPMENT OF THE TWO PUBLICATIONS ... 5 The Survey Magazine 5 The National Conference of Social Work ...... 7

III. THE PROBLEMS OF WAR AS SEEN IN THE SURVEY MAGAZINE. APRIL 1917 TO APRIL 1918 9 Organization of the Surrey ... 9 Articles on War Related Problems ...... 9

IV. THE PROBLEMS OF WAR AS SEEN IN THE PROCEEDINGS OF THE NATIONAL CONFERENCE OF SOCIAL WORK FOR 1917 25 Organization of the Conference 25 Articles on War Related Problems ...... 26

V. THE PROBLEMS OF WAR AS SEEN IN THE -SURVEY MAGAZINE DECEMBER 1941 TO DECEMBER 1942 55 Organization of the Survey * 55 Articles on War Related Problems 55

VI. THE PROBLEMS OF WAR AS SEEN IN THE PROCEEDINGS OF THE NATIONAL CONFERENCE OF SOCIAL WORK FOR 1942 46 Organization of the Conference ...... 46 Articles on War Related Problems ...... 46

VII. SUMMARY AND CONCLUSIONS 55

BIBLIOGRAPHY 58

Coy, l CHAPTER I

INTRODUCTION

At all times, and among all peoples there are large numbers of in¬ dividuals who are not able - alone - to meet the difficulties and

stresses which somehow are a part of life, or to satisfy the variety of needs which they may consciously or unconsciously fael. Under the added

impact of war and its accompanying distresses many of these needs are

intensified, new ones are added, and persons who in normal times were

able to carry on their lives satisfactorily find themselves searching for

help and guidance through unaccustomed experiences.

Every social institution is strained and changed by war—the family,

the church, the school, and the community. The family probaoly more than

any other institution feels the sharp edge of war: men and women join the

armed forces; women, many of whom never worked before, enter industry and

new jobs necessary to the national defense; chiLdren feel insecure and

fearful, or at least question and do not understand the new turn of events.

This upheaval in family life may be largely the basis of change in other

social institutions. Vvith family ties broken and family controls thus

weakened, even the church may lose some of its influence on old and young

alike. Standards of morality are relaxed and promiscuity and prostitution

increase. Schools may have to accept new responsibilities for children

at the same time that personnel is drained off into joos that sound more

patriotic or seem to promise, for a time at least, greater economic se¬

curity. There is great community disorganization at a time when solidari¬

ty of purpose is necessary for keeping up morale at home, for obtaining

adequate support for social work efforts in the country, and for securing 1 2 the support of groups and individuals for various phases of the war pro¬ gram.

"Social work concerns itself with human beings where there is any¬ thing that hinders or thwarts their growth, their expanding consciousness, their increasing cooperation. It is concerned with dependencies, anxie¬ ties, aggressions in their practical and intimate personal expressions.”

The many changes in the social and economic life of individuals and groups during war time provide new opportunities for social workers to render service. Social workers must curtail fears that arise among the people because of disturbed family life, unaccustomed taxation, increased cost of living and threatened shortages of all kinas; they must interpret the purposes behind these sudden changes which war brings. During the crises of war social workers must work, and think, and plan, in such a way that the social gains already achieved may not be lost; and that the ill effects of war shall be as brief and as little felt by all human beings as possible. They must inspire the hope of a new social order.^

Slightly more than twenty-five years after the first World war, when many families have barely recovered from the effects of the economic depression which followed it, the world finds itself in the throes of another vast conflict with all the changes and disadvantages that have been mentioned. It seems then that a study of social work thinking on problems related to the war during 1917 and those problems growing out

^"Bertha C. Reynolds, "Social Case work," Readings in Social Case Work, ed. Fern Lowry (new York, 1940), p. 156; Gordon Hamilton, Theory and Practice of Social Case V.'ork (New York, 1940), p. 5. 3 of or intensified by the present conflict is timely and also likely to produce information which is significant for the present.

Purpose of the Study

The purpose of this study is to discover what problems growing out of, or intensified by World Wer I and World War II were of concern to social workers, as indicated by papers and articles printed in the Proceed¬ ings of the National Conference of Social Work, and the Survey magazine during the first year of our country's participation in each of these con¬ flicts. Any difference in problems or the approach of social workers to them will be noted; and evidences of post war planning on the part of

social workers will be given special emphasis.

Scope of the Study

This study is limited to the periods of April 1917 to April 1918, and

December 1942 to December 1943. It is further limited to papers and arti¬

cles published in the Proceedings of the National Conference of Social

Work and the Survey during these one year periods. These publications

were selected because they appear to be the most outstanding publications

in the field of social work which are common to both of the periods being

studied. It is recognized, however, that there are other publications

today which are representative of social work thinking.

Method of the Study

The material used in this study has been selected from the two pub¬

lications according to title and subject matter. Where the title was not

sufficiently indicative of the content, the article or paper was scanned

to discover whether or not it came within the limits of this study. To

facilitate the collection and recording of data with some degree of uni¬

formity, a simple work sheet was used for each article. After all material 4

had bean gathered these sheets were arranged according to the problems discussed, and according to various aspects of the pro oleins whenever this

seemed to be indicated.

The present Executive of the National Conference of Social Work and

■^3 Editor of the Survey were consulted on matters relating to the origin and organization of the Conference and of the Survey .* Current litera¬

ture on war was used as background material.

*No reply has been received from the editor of the Survey. CHAPT ER II

THE ORIGIN AND EARLY DEVELOPMENT OF THE T»0 PUBLICATIONS

The Survey Magazine

The Survey magazine had its beginning in the early days of organized charity in this country, as a small leaflet called "Charities Review", published by the Charity Organization Society of New York City for the purpose of keeping its members in touch 'with its work. "Its pages came gradually to represent the workers in all forms of charitable activity".'*'

In the early years of the 20th century "Charities Review" had merged

•with it"Ien

by Edward Everett Hale in 18E6, and another magazine called "Jewish Chari¬ ties". After these mergers the magazine became known as "Charities". Of greaber significance, however, than either of these was the merger in 1905 of "The Commons", puolished at the Chicago neighborhood house of that name,

and edited by Graham Taylor. The name of the joint publication was "Chari¬

ties and the Commons". At the time of the merger, Edward T. Devine,

editor of "Charities" wrote:

To prevent is better than to relieve, if both are possible. To eliminate evil3 is better than to palliate their consequences. "Charities" has long since come to be identified with radically preventive movements, especially those which mean a protected childhood, the conquest of needless disease, and the security of a sound physical oasis for a rational domestic life, in other words, safe, decent, and sanitary homes. "Charities and the Com¬ mons" will be equally ready to examine and report upon the condi¬ tions which tend to cause or accompany dependence, and with greater enthusiasm will study and strive to encourage the indepen¬ dent influences which are at work in our communities for the com¬ mon good. It will bq a national medium which stands not severally

1 Editorial. Charities and the Commons (March 27, 1909), p. 1251.

5 6

but in combination, for the East and the V.est, for organized charity and the social settlements; for conservative strength and a radical spirit, for a conservative spirit and the full strength of democracy.

Shortly before the merging of "Charities and the Commons", "Chari¬ ties had formed a national publication committee of thirteen persons, among whom were Jane Addams; Robert W. DeForest, Présidait of the New York

C. 0. S.; Jacob A. Riis, of New York; D. C. Gilman, Présidait Emeritus of

Johns Hopkins University; and S. W. Woodward of the Associated Charities of the District of Columoia. This committee was continued, and 3dward T.

Devine who had edited "Charities", and Graham Taylor, editor of "The Com¬ mons", became Associate Editors of the joint puolication.

"Charities and the Commons" grew with social work in this country and in response to the direction of this growth and the changing philoso¬ phy in the field of social work, the March 27, 1909 issue of the magasins carriedtnotice of a change of name "decided upon after several years con¬ sideration and protests from individuals and groups" who said the name

"Charities" was misleading, and to many persons repulsive. In discussion regarding a new and adequate name a member of the puolication committee had wished "that they might have a clear bottle into which to drop their pebbles." With the selection of the name "Survey" the committee believed it had found such a bottle. This issue, March 27, 1909, further added that:

The change of name carries no change of staff, .scope or plans. The "Survey" will make particular and special and general exam¬ inations into living and working conditions; it will have a com¬ prehensive outlook, the viewpoint of the social worker; and it

Editorial. Charities and the Commons (October 28, 1905), Supplement. 7

will base on^his survey its recommendations for progress, for legislation.'1

The National Conference of Social Work

The date of origin of the National Conference of Social Work may be considered according to one’s point of view. The first seeds of such a

Conference were planted when, in 1872 and 1873 the State Eoerds of Public

Charities of three states—Wisconsin, Illinois, and Michigan—met together, the first year in Chicago and then in Milwaukee. These meetings were more local than national, since representatives of only three state boards were present. In 1874 the American Social Science Association invited all

State Boards of Charities to meet with them. And so the first Conference, actually national in scope, met in New York in May of that year, and for

the five years following, these two groups met together. By 1878 the

group representing the State Boards of Charities had grown sufficiently

large to indicate a need for independent action, and in 1879 the first an¬

nual meeting of the Conference as an independent group was held in Chicago

under the name of rtConference of Charities." The words "and Correction"

were added to the name in 1880, and this name—"Conference of Charities

and Correction"—continued in vise until the 1917 meeting. As was inti¬

mated above then, it would seem that according to one's point of view,

the date of origin of the Conference may have been 1872, 1874 or 1878.

The present Executivd of the Conference states that they have always con¬

sidered 1873 the first year of formal organization.^

In 1882 the Conference gave as its objects "To discuss the problems

1 0£i_Cit.

^Handbook of Learned Societies and Institutions of America (Washington, 1908), p. 77; Howard R. Knight, Letter, March 14, 1944; Frederick H. Wines, "The Growth of the National Conference," (July 1, 1905), p. 892. 8 of charity and correction and to disseminate information and promote re¬ forms." In the preface to the Proceedings of the 1884 meeting, held in

St. Louis, we find:

It has been understood that the Conference is simply an ex¬ change for the comparison of views and experiences, not a convention for the adoption of any creed or platform, not a body organized to accomplish any scheme or -undertaking..... The influence exerted upon public sentiment has been perhaps all the more powerful because it has been indirect. The questions ... studied ... have been examined with reference to their multiform relations to individuals and to the community, as questions of government, of social organization, of philanthropy, of political economy, of public policy, of educa¬ tion, of moral and religious obligation.1

Originally, the organization of the Conference was very simple, with

general sessions used as the setting for the various discussions. There was no constitution or by laws or rules of order, the group professed no

principles; there was no formal membership, and attendance was open to

those officially or unofficially connected with charitable or correctional

work, and all charitable institutions or associations were invited to be

represented and to take part in the meetings. There were no dues and no

expenses. (The State Boards of Charities each accepted financial respon¬

sibility for a certain number of the Proceedings of the annuel meetings

and distributed them without cost).2 Long before the years of this study,

however, the Conference had been divided into sections, had adopted cer¬

tain Rules of Procedure, had added a membership fee, and had developed

along many lines. Further development of the Conference will be considered

in the discussion of the 1917 meeting when other significant changes took

place.

^Preface, Proceedings National Conference of Social Work, 1884, p. iii.

ties« frsderickH.(July 1, 1905), Wines, p. 892."The Growth of the National Conference," Chari¬•I1-.- — CH AFT EE III

THE PROBLEMS OF FAR AS SEEN IN THE SURVEY MAGAZINE

APRIL 1917 TO APRIL 1918

Organization of the Survey

The organization of the Survey in 1917 consisted of a Board of Direc¬ tors of twelve persons; a National Council of twenty-nine members with

Robert W. DeForest of New York as president; a Headquarters Staff headed by Paul ÏÏ. Kellog, editor, and his eight assistants, among whom were

Arthur P. Kellog, Winthrop D. Lane, Graham R. Taylor, Gertrude Seymour, and Bruno Lasker. Associate Editors were Edward T. Devine, Graham Taylor, and Jane Addams. Twelve Contributing Editors completed the staff, and among these was Porter R. Lee, Director of the New York School of Philan¬ thropy. The magazine was published weekly.

Articles on War Related Problems

Waller says that whenever two great powers become involved in war there is a tendency for other nations to join until there is a world con¬ flict. He describes a "milling process" through which all nations go be¬ fore actually entering the war.^ European nations had been at war for

two years when, on April 2, 1917 under President Woodrow Wilson, the

United States declared war against Germany after her repeated submarine

attacks on American ships. Many young American men had joined those at

the battle front, so that at least to some extent the people of the

^Willard Weller,editor, War in the Twentieth Century (New York, 1940), pc. 18-21.

9 10 country were already attuned to war when the declaration was made.

The material from the Survey for 1917 on war related problems, is classified under fourteen different headings, and these headings are dis¬ cussed in the order of their importance to social workers as Indicated by the number of articles concerning each problem. Some of the material consisted of articles by social workers and others, and some of it was editorial comment.

Industry.- Considerably more was written concerning the problems of industry than of any other subject. This study included fifty-six edi¬ torials and thirty-one articles dealing with various problems of labor in war time. Many of the articles were written by members of the Survey staff, notably John A. Fitch, of the Industrial Department, who was the author of most of the articles concerning union activities and the preven¬

tion of strikes. He also wrote on the demands for labor and the available

supply; and the need for maintaining protective labor laws and. standards.

Mary Chamberlain, also of the staff, contributed articles on women in in¬

dustry, as did Mary E. McDowell, Head Resident, University of Chicago

Settlement, and Florence Kelly, General Secretary, National Consumers'

League. No effort is made here to list all of the writers on industry,

but merely to give some idea of the principle sources of these articles.

As early in the war as May, 1917 Mr. Fitch contributed an article

entitled "Peace at Home - The Danger of Strikes and Coercion" in which he

stated that neither capitalror labor, government nor the Council of Nation¬

al Defense had a program for preventing strikes, and that many strikes

would arise tinder the prevailing conflicting labor laws. He suggested

that a governmental board be created to establish labor standards, en¬

force them, and devise some plan for speedy settlement of disputes. 11

Difficulties of the Industrial Workers of the World were given attention by other writers and in editorial comment, and they were criticized for calling strikes on every favorable occasion without regard to specific grievances. However, evidence that organized labor wished to cooperate with the Government in war production was indicated in editorial comment on the fact that fifteen of the most powerful unions of America, affilia¬ ted in the metal trades department of the American Federation of Labor, had adopted a resolution not to strike while at work on any government contract during the war provided a clause for just arbitration of grie¬ vances be inserted in the contracts. Also by way of an editorial, the

Survey commented on the importance of the position occupied by labor, as indicated by the appearance of President Woodrow Wilson as speaker at the opening meeting of the American Federation of Labor in Buffalo, New

York in November. Other articles made reference to management's attitude towards collective bargaining; and to the President's Commission on Indus¬ trial Unrest which recommended establishment of "continuous administrative machinery for the orderly disposition of industrial issues," an eight hour day, and a unified direction of the labor administration of the United

States for the period of the war.'*'

In an article, John B. Andrews, Secretary, American Association for

Labor Legislation, said we have been especially remiss in our lack of

All following footnotes in this chapter refer to material in the Survey Magazine; therefore only date of publication and page will be given in footnotes. 1 John A. Fitch, "Peace at Home", (May 26, 1917) p. 189; Editorial (June 50, 1917), p. 299; Editorial, "President Goes to a Union Meeting" flovember 17, 1917), p. 175; John A. Fitch, "Making the Bargain," (Decem¬ ber 15, 1917), p. 516; John A. Fitch, "Report on Industrial Unrest," (February 16, 1918), p. 545. 12 social concern for unorganized labor’s welfare in time of peace, and. now in time of war we must prepare for both war and peace. Other editorials were concerned with labor difficulties in the shipping trades. Involved in the problem of strike prevention was that of an apparent labor shor¬ tage. Several articles written by staff members, as well as editorials point out the need for adequate wages and improved working conditions, particularly on farms, to offset a labor shortage that is more apparent than real.l

Negro migration to industrial centers was a phase of this problem.

There was discussion concerning the real causes for the migration and of the racial difficulties it precipitated in many places, such as East St.

Louis, Illinois. The Survey made editorial note of a silent parade of eight thousand Negroes in New York City in protest particularly of the industrial discrimination against them.^

Interest regarding women in industry centered mainly around protec¬

tion of women war workers from overstrain and overfatigue as a result of

long hours and poor working conditions; and what to do about mothers of

children under school age who worked nights and, because of the children,

spent sleepless days. Mary E. McDowell, Head Resident, University of

Chicago Settlement, who made a study of forty-six such working mothers

answered the question what to do about it by getting four of the large

Editorial, "Trade Agreement in the Shipyards" (September 1, 1917), p. 488.

^Editorial, "More Testimony on Negro Migration" (July 14, 1917), p. 40; Oscar Leonard, "The East St. Louis Program" (July 4, 1917), p. 531; Editorial, "A Negro’s March with Muffled Drums" (August 4, 1917), p. 405. 15 packing houses to say they would not employ women with children under school age. Editorials were concerned with efforts of some state legisla¬ tures to relax their protective labor laws with reference to women and children; with making conditions in war plants suitable for women workers; and with sweatshop labor in homes, on army uniforms. With reference to maintaining protective legislation, Newton D. Baker, Secretary of War, said it was of no good to send our young men to France to fight for our political rights if, while they are doing that, we surrender our social and industrial rights.1

Articles regarding children in industry were highlighted by a series by Winthrop D. Lane, in which he recounts the European experiences concern¬ ing children in the early days of the war, and the disadvantages they suf¬ fered from relaxation of labor and school laws. He urged the United

States not to make the same mistakes. Editorials reflect the great con¬ cern about this problem. Another phase of the child labor problem was

shown in a large number of editorials regarding the relaxation of school

laws and the use of children for farm labor. Some titles of editorials were "What Farmers Think of Boy Labor? "Child Labor Laws in War Time," and

"Federal Enlistment of Boys for Farms." Opposition to the Federal Child

Labor Law was noted. Joining the fight against sweatshop-tenements, parti¬

cularly with regard to children, the Survey carried a picture of a mother

with a new baby in arms, and four children ten to five years old working

at home affixing pins to small United States flag emblems at three cents

per one hundred forty-four and, together, earning a total maximum of $2.00

"S/ary Chamberlain, "Women and War Work" (May 19, 1917), p. 155; Mary E. McDowell, "Mothers and Night Work" (December 22, 1917), p. 355; Edito¬ rial, "Relaxing Protective Labor Laws" (June 9, 1917), p. 250. 14 per week. The Survey commented that the children worked early and late.^

Maintenance of labor laws and standards was woven into discussions of the problems of each labor group. The contention of some persons that some kind of suspension of these laws and standards was necessary to meet the needs of war production was answered by the Survey in articles by Mr.

Fitch, and by Miss Henriette R. Walter of the Russell Sage Foundation.

The English experience was cited. It had been found in England that by

cutting out seven day work and overtime they increased their total output.

The other article recorded the experiment that a manufacturing company

in the United States had made in this area, and their statement that "Our whole experience tends to justify the shorter hours movement"^

Health.- Concern with war problems in the field of health was shown

in seventeen articles and forty-eight editorials. Attention was called

to the increased health needs of civilians in war time, and efforts at

closer cooperation between state and federal health authorities were

urged. An editorial quoted a member of the Navy Medical Reserve Corps as

having said that the large number of draft rejectees on account of physical

condition indicated the great need for more attention to health by school

and public health authorities. Another editorial urged a national program

of health insurance. Editorial notice was given to the suggestion of the

National Association for the Study and Prevention of Infant Mortality that

%inthrop D. Lane, "Making the War Safe for Childhood." (August 4, 1917), p. 581; Editorial, "Farms, Farmers and Farm Labor" (April 21, 1917), p. 67; Editorial, "On the Way to the Supreme Court" (September 1, 1917), p. 507; Editorial, "Betsy Ross in Modem Times" (June 2, 1917), p. 224.

^Henriette R. Walter, "Output and Hours" (April 21, 1917), p. 51; John A. Fitch, "Hours and Output" (May 12, 1917), p. 158. 15 better obstetrical service, more nursing and extended educational efforts be provided in rural areas; and that nurses should realize that home ser¬ vice is just as patriotic as a call to go abroad.^-

Through several editorials attention was called to tuberculosis prob¬ lems. One of these made note of a plan outlined by Dr. Herman Biggs for better control of tuberculosis among soldiers by the use of volunteer ex¬

perts in examination of army recruits who indicate a possible presence of

the disease, and a periodic examination of troops every three months.2

In the field of industrial health there was interest regarding the

danger of industrial poisons in munitions plants. An article reported on

a study of the situation by the TJnited States Bureau of Labor, and the

conclusion that the effort to speed up production and postpone needed pro¬

tection to the workmen, together with ignorance among chemists regarding

the new substances they were handling seemed to constitute the greatest

danger.^

Problems concerned with the health of soldiers centered around protec¬

tion from venereal disease by cleaning up houses of prostitution, and vice

conditions in camp districts and adjoining cities. Several editorials

under such titles as "To Save the Army from Venereal Disease" and "Social

Hygiene for the Soldiers," dealt with this phase of the soldiers’ health.

There was planning for medical care and for training and readjustment to

Alice Hamilton, Gertrude Seymour, "The New Public Health" (April 21, 1917), p. 59; Gertrude Seymour, "Medicine Mobilized" (April 28, 1917), p. 97; Editorial, (March 9, 1918), p. 635.

O Editorial, "Tuberculosis among the Rookies" (May 26, 1917), p. 198. 5 '"Gertrude Seymour, "Industrial Poisons in Munition Plants," (June 30, 1917), p. 283. 16 industry for returned disabled soldiers and sailors.^

Civilian Relief»- Twenty-four articles and twenty-one editorials were given to discussion of civilian relief. Civilian relief at home was large¬ ly concerned with care of the families of soldiers and sailors. Plans for financial assistance to these families by means of separation allow¬

ances were explained in articles and editorials; and details of the Ælexan-

der-Simmons bill, which presented the plan to Congress, were discussed.

The bill finally adopted provided also for insurance benefits in case of

permanent disability or death. As to the administration of these allow¬

ances, social workers called attention to the fact that they should not be

considered relief, but a part of the service man's pay, and as such should

be administered by the government rather than by a relief agency.^

Another aspect of civilian relief, given considerable space, was

that concerned with recruiting and training of volunteer civilian relief

workers under the Home Service department of the American Red Cross.®

Relief to civilians and soldiers in foreign countries was discussed

in several articles, most of them written by Paul Kellog, editor of the

Survey, who had gone to France to aid in the directing of relief activities

there. Red Cross relief activities in Italy, Russia, Rumania, and Canada

are described.^

^Editorial, "To Save the Army from Venereal Disease" (May 12, 1917), p. 145; Editorial, "Institute for Crippled Soldiers" (June 30, 1917), p. 297.

^Editorial, "When the Breadwinner Goes to War" (August 18, 1917), p. 435; Porter R. Lee, "To Keep the Kettle Boiling" (September 15, 1917), p. 520. 5 Editorial, "Home Service by the Red Cross" (September 1, 1917), p. 486.

^Paul ÏÏ. Kellog, " Four Months in France" (November 24, 1917), p. 181. 17

War Financing and Maintenance of Social Agencies*- Among the problems of the first year of World War I that gave much concern was that of war and social work financing, and maintenance of every day social work activi¬ ties. There were twelve articles and eighteen editorials concerned with this joint problem. Financing of the war and of the established social agencies was closely allied because it was seen that a greater demand upon the purses of the nation to meet the needs of war would tend to make less money available for social agencies. Approval was registered of the amend¬ ment to the War Revenue bill which provided that within certain limits gifts to social, educational and religious work should be exempt from taxa¬ tion. Thus it was hoped that private philanthropy would be stimulated in

the direction of these agencies. Social workers realized that the usual

duties of organized social work would not grow less during the war, and

that probably new obligations would be added. Among those who spoke out

concerning the maintenance of usual activities was Mary K. Simkhovitch,

President of the National Federation of Settlements, who called attention

to the Canadian settlements where their regular work at the outset of the

war was given up, only to have it decided later it was the most patriotic

service they could render.-*-

Another aspect of social agency financing which caused some concern

had to do with the lack of proper accounting methods on the part of some

war relief agencies with reference to the money collected by them. Estab¬

lishment of a federal bureau of endorsement, operated under the Council

of National Defense, was suggested for approval of the methods of fund

■'"Samuel M. Lindsey, "Social Aspects of War Taxes" (July 28, 1917), p. 365j Editorial, "Social Settlements and the War" (April 7, 1917), p. 29. 18 handling in these agencies. England’s solution to the problem was cited.

There is no evidence that more than local or state efforts were made at regulation of the war relief agencies.^

The financial campaign of the American Red Cross, about which there was some writing, apparently met no difficulties. In commenting upon the generosity of those who gave, the Survey made note of a woman at Middle- town, Ohio who, having nothing else to give donated a hen and one dozen eggs. These were auctioned by the local committee for $2,002.00.

Prohibition.- In addition to five articles and sixteen editorials bearing directly on the issue of prohibition, the Survey gave a rather large amount of space through the reproduction of posters and cartoons

that were a part of the campaign. The question of prohibition was, of

course, a problem to the country before war was declared; but after the

United States was actually in the conflict promoters of a national prohibi¬

tion law felt that there were even more reasons to Justify such a law, and

they intensified their campaign. Major General William Harding Carter,

U.S.A., was quoted in an editorial as having laid upon liquor the respon¬

sibility for production of criminal, insane, untrustworthy men and women

and degenerate children. He was further quoted as having said that the

proceeds of government taxation of stills and breweries was no compensa¬

tion for the misspent lives and stinted brains of those addicted to drunk¬

enness. The use of grain, said to be sorely needed for food, in the manu¬

facture of liquor was another argument against it. This "waste" of food,

and the necessity to protect the morals of yoimg men in the army and navy,

•^Barry C. Smith, "A Danger in War Relief" (June 2, 1917), p. 215; Edward T. Devine, "Control of War Charities" (August 25, 1917), p. 456. 19 and the need to develop national efficiency to its highest point were the chief arguments used. Elizabeth Tilton of Boston and Br. Irving Fisher of Yale University were leaders in the fight for wartime prohibition.

The Survey carried several articles on the problem and editorially gave the campaign much publicity. At the close of the first year of the first

World War a constitutional amendment had passed Congress and was before the states for ratification. The amendment prohibited the manufacture, sale or transportation of intoxicating liquors within, the importation thereof into or exportation from the United States and all its territories.

Food Conservation.- Six articles and fifteen editorials were written on the problem of conservation of food. The problem of the food supply was, as was intimated above, to some extent linked with that of liquor

prohibition. However, the accepted solution for the greatest control over the food of the country and the prevention of excessively high prices was

seen in a program of federal control of food, and certain other neces¬

saries, as to their production, manufacture, minimum price to producer,

standards of packing and of grade, and stopping the use of grain in the

manufacture of alcohol. The Survey commented editorially that such a

bill, if passed, would assure farmers a fair price for their crops, middle¬

men a living wage in the form of commissions, retailers would be guaran¬

teed a reasonable profit for their work, and consumers could be paid a

wage calculated upon the knowledge that the market for the agricultural

and industrial output of the country was adequate and steady. A similar

•'•Editorial, "The Economics of War Prohibition" (May 12, 1917), p. 145; Elizabeth Tilton, "Prohibition for Preparedness" (April 14, 1917), p. 38; Editorial, "National Prohibition on the Way" (December 22, 1917), p. 545. 20 bill was finally enacted and Herbert Hoover, who had been director of the

Belgian Relief Commission, was appointed administrator. The Survey com¬ mented upon some local efforts among women for education of themselves in the preparation, use and selection of foods.^

Peace and Reconstruction.- In four articles and twenty-one editorials the Survey showed that both in the United States and in Europe there was talk of the ways in which peace might be attained and maintained, and of plans for reconstruction after the war. As early as May, 1917, according to editorial comment in the Survey, representatives of small nations, with headquarters in New York, had joined forces to have their say at the peace conference after the war. William I. Hull of Swathmore College called attention to the need for an international commission to ascertain the first possible opportunity of bringing the war to an end. The First

Congress of the League of Small and Subject Nationalities was reported to have met in New York with representatives of twenty different nationali¬

ties. Among other things, it called for separate representation of every 2 nationality at international conferences.

Reconstruction in terms of plans for care of French war orphans, and

of meeting needs for employment was discussed. Bernard «T. Newman, Direc¬

tor of the Pennsylvania School for Social Service d*»!oi crried a chart of a

reconstruction and rehabilitation unit for service in Europe. The Survey

commented upon the organization in New York and other cities of a new

Editorial, "And They Did All Eat" (November 10, 1917), p. 145? Editorial, "Food Control Enacted at Last" (August 18, 1917), p. 445; Editorial, "The Food Lady" (October 20, 1917), p. 70.

^Editorial, "Small Nations Leagued Together" (May 5, 1917), p. 120; William I. Hull, "An International Humanitarian Commission" (August 25, 1917), p. 454; Editorial, "Liberty to World Peace" (November 10, 1917), P. 157. 21 society called "Friends of the German Republic" and open only to persons of German birth or descent. The Survey said this was an echo of the revo¬ lutionary movement among some of the people of Germany against the im¬ perial government. About the same time socialists in Germany were pre¬

senting to a neutral conference at Stockholm, their program for peace.^

Civil Liberties, and Freedom of the Press.- Five articles and twelve

editorials were written about the problems of civil liberties, including

that of the conscientious objector; and the right of the press to express

itself freely. Norman M. Thomas of New York called attention to the un¬

friendly attitude of a large part of the public towards the conscientious

objector. A conscientious objector himself, he pleaded that they not be

considered slackers, cowards, or pro German, as newspapers, orators, and

others had called them. He said that unless the rights of the minority

are respected, democracy degenerates into mobocracy. Quaker groups and

other organizations discussed the problem and took part in formulating

plans for active service for those objectors who wanted to cooperate with

the government in some way. At the end of the first year of the war, Pres¬

ident Wilson issued regulations for the treatment of the conscientious ob¬

jector and named certain non-combatant services which might be performed by

those who would accept. Those who refused non-combatant service because

of conscience might be sent to United States disciplinary barracks or

elsewhere by the War Department, but might not be sent to the penitentiary,^

^Editorial, "Industrial Peace in Great Britain" (May 19, 1917), p. 168; Editorial, "A Plan for Rebuilding Europe" (October 6, 1917), p. 25; Edito¬ rial, "Friends of the German Republic" (July 7, 1917), p. 524.

%orman ¥. Thomas, "War's Heretics" (August 4, 1917), p. 391; Edito¬ rial, "Practical Patriotism for Objectors" (May 12, 1917), p. 146; Editorial, "Status of Conscientious Objectors" (March 30, 1918), p. 711. 22

Formation of the American Legal Defense League by prominent men and women to defend in the courts, free for those unable to pay, constitution¬ al liberties in any part of the United States" was in reaction to what many considered a threatened war time invasion of the rights of democracy.

While various groups were protesting an invasion of individual liberties, the newspapers protested the censorship section of the espionage bill which permitted the Postmaster General to hold up the mailing of any pa¬ pers he considered in violation of it„^

Housing.- There were four articles and five editorials on the problem of housing. The overcrowding in housing around war plants was one of the difficulties discussed and the British experience in housing was cited.

In a featured editorial the Survey noted that a congressional appropria¬

tion of #100,000,000 to provide housing had been proposed. There was be¬

lief that only through government action could the housing problem be

solved. The interest of the Y. W. C. A. in the proper housing of girl war

O workers was the subjedt of one editorial.

Recreation.- Two articles and four editorials dealt directly with

recreation, and they made particular reference to the soldier. Bruno

Lasker said that the appointment by Secretary of War, Newton P. Baker, of

the Commission on Training Camp Activities was an acceptance of responsi¬

bility by the nation for the recreation of military personnel and for

civilians among whom they settle for varying lengths of time. Mr. Lasker

^Editorial, "Free Speech and Peaceable Assembly" (May 12, 1917), p. 144; Editorial, "Protest against a Muzzled Press" (July 21, 1917), p. 358.

^Bruno Lasker, "The Housing of War Workers" (January 5, 1918), p. 390; John Ihlder, "A Cleveland Plan for Financing House Building" (January 26, 1918), p. 461; Editorial, "Home Comforts for Girl War Workers" (March 16, 1918), p. 658. 23 also made note of the efforts of the Young Men’s Christian Association in providing recreational activities throughout the country for men in train¬ ing. In some localities grievance or adjustment committees were organized to smooth out difficulties arising from soldiers* complaints of the high prices of public recreation, and civilians' complaints of the conduct of soldiers.*-

Refugees and Foreigners.- There were three articles and two edito¬ rials concerned with refugees and foreigners. There was some concern for helping families of French, Italian and Belgian reservists, whose men were away fighting, to maintain an American standard of living. Ameri¬ canization of the foreigners and refugees within our gates was given at¬ tention and it was thought that much might be accomplished through night classes that were connected in some way with their employment.^

Delinquency and the Protection of Girls.- Two articles and three editorials were concerned directly with this problem. Winthrop D. Lane reported on an institute at the New York School of Philanthropy under the atispices of the War Department's Committee on the Protection of Girls.

The Institute was interested in ways to counteract for young girls the glamour of the uniform. Mr. Lane gave a five point community program of: protection, detention, probation, law regulation, and educational ser¬ vices, directed towards girls in army zones. An editorial told of an increased budget to meet needs in protecting and aiding women in war and

^Bruno Lasker, "In the Rookies' Playtime" (May 12, 1917), p. 137; Edi¬ torial, "Public Recreation and Training Camps" (November 3, 1917), p. 127.

^Margaret F. Byington, "Within Our Gates" (July 7, 1917), p. 299; Helen Winkler, "Laggards at Nipht School" (January 26, 1918), p. 462. 24 army zones in this country, as well as abroad. Also in an editorial, the

Survey commented upon a call from many communities for workers for protec¬ tive and probation work with girls.

%inthrop B. Lane, "Girls and Khaki" (December 1, 1917), p. 257; Editorial, "Protecting Girls in Army Zones" (December 15, 1917), p. 525; Editorial, "Protective Officers for Girls Wanted" (January 26, 1918), t>. 465. CHAPTER IV

THE PROBLEMS OF WAR AS SEEN IN THE PROCEEDINGS OF THE

NATIONAL CONFERENCE OF SOCIAL WORK FOR 1917

Organization of the Conference

On June 6, 1917 the national organization of social workers convened in Pittsburgh, Pennsylvania under the name of the National Conference of

Charities and Corrections. The president of this Conference was Frederic

Almy of Buffalo, New York, end the vice president was Joseph Lee of Boston..

Julia C. Lathrop of Washington, D. C. and Rabbi Emil F. Leipziger of New

Orleans were second and third vice presidents, respectively. The general secretary and treasurer of the Conference was William T. Cross of Chicago.

Business committees were those on Nomination, Organization, Resolutions,

Time and Place, Change of Name, Kindred Groups, and the local Committee on Arrangements.

For the first time in the history of the organization a stand was taken at this meeting on certain national issues, and resolutions were adopted to express the attitude of the Conference towards them. One of the resolutions, unanimously adopted by the Conference, declared "its in¬ tense loyalty and its purpose to support the President and the Government of the United States in the prosecution of this war...." The other reso¬ lution, which had to do with prohibition, will be discussed under that heading. Other action of note at this Conference was the adoption of the new name - "National Conference of Social Work" -, and the exchange of the simple Rules of Procedure for a detailed Constitution and By-laws.

25 26

Articles on War Related Problems

When the Conference met in 1917, the country had been at war for two months. The initial military registration had taken place the day before.

Social workers apparently had already taken up the challenge for finding

ways to continue existing social services, and at the same time meet the

new problems which war was bringing, for they came to this meeting in un¬

precedented numbers—more than four thousand.^

Although the Conference program had been planned before declaration

of war by the United States, certain changes were made after that so that

attention was given to many problems which had already grown out of or

been intensified by war conditions.

Health.- The problem which received most attention, judging by the

number of papers on the subject included in the Proceedings, was that of

health. There were eight papers on different phases of health problems as

they related to war conditions. Dr. C. E. A. Winslow, Professor of Public

Health at Tale University School of Medicine, reviewed some of the accom¬

plishments in public health from 1906 to 1914, and emphasised a need for

prevention and control of disease particularly among the civilian popula¬

tion during war time. He recommended increased, appropriations for state

and local health departments, more doctors and nurses in slum and rural

areas, and redoubled, rather than relaxed efforts against disease during

war. Dr. Irving Fisher, also of Yale University, discussed the need for

1 Preface, Proceedings of the National Conference of Social Work. 1917, p. iii.

2(Since all footnotes in this chapter refer to material in the Proceed¬ ings of the National Conference of Social Work for 1917, hereafter only author, title and page number will be given.) 27 the greatest conservation of human life and human vitality during war.

He named prohibition as a means of health conservation, and a national pro¬ gram of health insurance as another. The basic principles of health insu¬ rance, the way in which war has emphasized the need for it, and its growth in favor in many states, were discussed by another speaker.^

The intensified need for public health nursing brought on by the war was seen in an immediate need for health protection, education, sanitation and sickness care in rural as well as urban districts, according to Mary

E. Lent, Associate Secretary of the National Organization for Public

Health Nursing. This speaker urged that more women enter the nursing pro¬

fession and that they get adequate and complete training. Tuberculosis

was one of the fields in which nursing was especially needed. And it was

stated that all skill and knowledge must be used to combat this disease in

camp and on the battle ground, and to recognize and cope effectively with

it at home, where all predisposing features of it are emphasized during

war. Grace L. Meigs of the United States Children’s Bureau called atten¬

tion to the threat to infant welfare work resulting from the loss of many

doctors and nurses to the war.^

The care of wounded and disabled soldiers who would soon be arriving

in the country was discussed mainly from the standpoint of how Canada had

7 managed this problem. In Informal discussion with many participants,

^C. E. A. Winslow, "Health in War and Peace," pp. 169-75; Irving Fish¬ er, "Public Health as a Social Movement," pp. 185-92.

^Mary E. Lent, "Public Health Nursing and the War," pp. 214-18; Alice E. Stewart, "Public Health Nursing and Tuberculosis," pp. 218-25; Grace L. Meigs, "Infant Welfare Work in War Time," pp. 192-206. 2 E. H. Scammell, "Disabled Soldiers," pp. 55-58. 28 and Edward revine presiding, the following solutions were recommended: provision of constructive work for the man immediately upon release from the hospital, intelligent and consistent service to the individual men by the proper social agencies, educating employers regarding the use of re¬ turned soldiers, and national prohibition as an effective health measure for all groups.

Financing and Maintenance of Social Agencies.- One paper, a committee report, and another report of an informal discussion constitute the mater¬ ial in this group. Samuel McCune Lindsay of Columbia University, in con¬ sidering the maintenance of existing social agencies, pointed out the dif¬ ficulty that would be met in financing of the ordinary social, religious, and educational activities of the community when both surplus income and capital were required for war uses. He favored the exemption of legacies and bequests for charitable, educational, and religious purposes from taxation. In informal discussion the effects of war on normal activities of social agencies and institutions was considered. Coordination of all war relief agencies under the American Red Cross, and explanation to the

public of the need of those at home for help, were suggested as aids to the

problem of financing and maintaining social work activities. In the com¬

mittee report on social problems of the war, an over all view was given

of the way in which social problems would be intensified by the war, and

the-need for maintaining the standards essential to a normal life "in so

far as is compatible with the primary interests of the nation" in wartime.'*'

The resolution to support the war, which has already been mentioned,

Samuel M. Lindsay, "Financing Charities in War Time," pp. 52-55; Committee Report, "Social Problems of the War," pp. 44-52. 29 also emphasized the importance of full maintenance of the agencies for social work and adequate support for them to meet the new and pressing needs brought by the war—especially public health and family life, maternal and child conservation. The Conference also urged, in this resolution, against the volunteering of social workers for war service to such an extent as to cripple the effectiveness of the vital social agencies.

Civilian Relief.- There were three pspers concerned with civilian re¬ lief. How Canada had met the problem of war relief to families of enlisted men was presented in some detail. To meet the need in this country for all

sorts of aid that would arise in families of enlisted men, Eugene T. Lies,

National Director of Family Relief for the American Red Cross, said there must be a Red Cross chapter, branch or auxiliary related to every inhabited

area of the United States. There must be trained volunteers to offer their

services, early contacts with all these families, and application of the

best known principles and methods known in the field of social work.

Joanna C. Colcord, Superintendent of the Charity Organization Society of

New York, emphasized the need for definite case work training for these

volunteers, and for the establishment of training facilities. The Red

Cross, she said, must set standards of work and of workers; social workers

and social work teachers must give their services; and colleges and univer¬

sities might he asked to add short training courses to their summer curri¬

cula. The training of these volunteers, she said would be as much prepara¬

tion for peace as for war, as it would provide "s new army who will help

keep the place of case work in a changing world."1

^Helen R. Y. Reid, "War Relief in Canada," pp. 126-39; Eugene T. Lies, •Red Cross Work among Families of Soldiers and Sailors," pp. 140-43; Joanna C. Colcord, "Training for the Work of Civilian Relief," pp. 143-45. 50

Prohibition.- Although no paper was presented on the direct issue of prohibition of alcoholic liquors, there was proof of the importance of the problem to the entire Conference in the resolution unanimously adopted

"favoring the absolute national prohibition of the manufacture, importa¬ tion, and sale of intoxicating beverages during the war and for at least one year thereafter. It has already been seen that references were made to prohibition in the discussion of the problem of health. It was also considered an important item in food conservation, as may be noted in the material on that subject.

Food Conservation and Standards of Living.- Graham Lusk, Professor of

Physiology at Cornell University presented facts to show in what ways many of the European countries had met their food shortage problems. For our

threatened grain shortage he suggested a tax rendered every three months on all steers over a year old, since the United States could, well reduce

its meat consumption one half with no ill effects. For those who read he mentioned several good books dealing with economy in diet; and for those

who do not read he suggested that packaged food be labeled according to

its food content. He asked is it not strange that with all the government

study regarding the nutrition of animals "not one in the whole world main¬

tains an institute for the study of the nutrition of man. "2

In informal discussion it was brought out that standards of living

may sometimes be affected by legislation as standards of industry generally

are. It may be affected by the elimination of alcoholic beverages. From

this point prohibition was discussed as a measure of conservation of the

^Resolutions Committee, p. 657. 2 Graham Lusk, "Economy in Diet," pp. 251-40. 51 food supply, conservation of industrial efficiency, and conservation of character and morals of men in the service. Attention was called to the need for consideration of the wage standard in relation to standards of living, and the necessity for social workers to take advantage of every opportunity to point out what an adequate wage may be in order to maintain adequate standards of living.^

Child Labor.- Fear that American childhood might be sacrificed as in¬ dicated by relaxation or suspension of child labor laws in some states, and relaxation of compulsory education laws by legislation, was expressed by Owen Lovejoy, General Secretary of the National Child Labor Committee,

in the one paper on this subject.^ He said we have made important gains

in legislation outlawing exploitation of children in industry, and we must

not let the war undo this good and prevent further progress.

Illegitimacy.- There was one paper on illegitimacy in relation to the

war. This paper discussed how illegitimacy in Europe had been affected by

the war. The conclusion was that according to available figures the ille¬

gitimate and legitimate births had decreased, with the smaller decrease in

illegitimate births. No unusual plans had been initiated for care of the

illegitimate though existing laws for their welfare had been reinforced

and extended. It appeared, also, that there was an increased tendency to

include illegitimate as well as legitimate children in government provi¬

sions for the support of soldiers' families.^

^Informal Discussion, pp. 76-82; Allen T. Burns, "Standards of Living," p. 85.

^Owen R. Lovejoy, "The Future of American Childhood," pp. 268-75.

^Emma 0. Lundberg, "Effects of War on Illegitimacy in Europe," pp. 299- 504. 52

Peace.- William Howard Taft described the League to Enforce Peace as one into which all nations should enter and be bound by treaty stipula¬ tions. An international court would settle matters between nations that are based on international law; and a commission of conciliation would, after a full hearing, recommend compromise measures where matters could not be settled on a legal basis.^ This was the only paper on the subject of peace.

^William Howard Taft, "The League to Enforce Peace," pp. 35-45 CHAPTER V

THE PROBLEMS OF WAR AS SEEN IN THE SURVEY MAGAZINE

DECEMBER 1941 TO DECEMBER 1942

Organization of the Survey

The organization of the Survey in 1942 did not appear to be essen¬ tially different from that of 1917. Instead, however, of being published weekly as in 1917, there were two monthly publications—the Survey Graphic the first of the month, and the Survey Midroonthly published in the middle of the month. Both of these publications were examined for this study.

Julian Mack was Chairman of the Board of Directors and Paul U. Kellog was editor of the two publications. Associate editors included Gertrude Sprin¬ ger, Ann Brenner, and Beulah Amidon. Helen Chamberlain and Kathryn Close were assistant editors; and among five contributing editors were Joanna

C. Colcord and Edward T. Devine.

Articles on War Related Problems

War, like a few other crises which are more or less common to all people, may be to some extent expected, and even prepared for, but never¬ theless comes with something of a shock. It was that way in 1942. For many months the country had been in the midst of a national defense pro¬ gram which included national military training for young men, and yet when on December 7, 1941, the Japanese suddenly attacked the United States at Pearl Harbor the country was shocked and for a moment stunned. The writings in the Survey for the first year of this war indicated that again

the country met the challenge and set about serious defense of itself at

55 54 home as well as at the front.

The material from the two Survey magazines for 1942 is classified under twelve different headings and, as for the 1917 material, these head¬ ings are discussed in the order of their importance to social workers as indicated by the number of articles and editorials concerning each problem.

Civilian Relief.- Thirteen articles and nine editorials were given to the discussion of civilian relief. Civilian relief at home was large¬ ly concerned with the care, protection and relief of citizens in the event of an enemy attack. The use of volunteers to aid in this work, and plans for their training were parts of this problem which were discussed in ar¬ ticles by Leonard W. Mayo, Dean of the School of Applied Social Sciences at Western Reserve University, and Kathryn Close of the Survey staff.

The first named writer said that social work had attained a different

point of view since 1917, and accepted volunteers for what they can do and

for what they will teach the public of the need for high standards of pro¬

fessional training and personnel; and that training courses for them

should be based on a job analysis of what they actually do rather than

"stepped-down" professional training. Kathryn Close named areas in which

volunteers would be needed, and in which they might be helpful, such as in

the programs of day care for children; as clerical, nursing, and housekeep¬

ing aides; as assistants rather than substitutes to the paid staff of

social agencies. An editorial comment referred to training courses for

volunteers in Pittsburgh, Cleveland, and New York.'*'

The care of civilians in case of enemy attack and the part public and

^Leonard W. Mayo, "Then and Now," Survey Midmonthly (November 1942), p. 296; Kathryn Close, "Volunteers Are Welcome," Survey Midmonthly (February 1942), p. 55. 35 private social agencies might play was discussed in an article entitled,

"In Case of Enemy Attack." The story of the organization of Mt. Vernon,

New York social workers to function as a unit with a view to the longer term services of rehabilitation to people bombed out of their homes was told by the chairman of the Council of Social Agencies of Mt. Vernon.

There was editorial mention of funds made available by the United States

Public Health Service to the medical division of the Office of Civilian

Defense for setting up blood plasma banks for the use of civilians; as well as mention of plans whereby the federal government would reimburse private hospitals caring for civilians injured during enemy action.-*-

Another phase of civilian relief about which there was some concern was that of indemnity to civilians for loss of home and effects as a re¬ sult of enemy attack. This was discussed in articles, and also by way of editorial comment on the War Damage Corporation created by Congress to off-

O set such losses by civilians.

Planning for the care of the femilies of men in the armed forces was discussed in an article by Elizabeth Wickendon of the American Public Wel¬ fare Association. Details of the allotments and allowances bill, signed by the President, were given in an article by another writer.®

^William Hodson, "In Case of Enemy Attack," Survey Midmonthly (Novem¬ ber 1942), p. 295; Henry E. Kagan, "Welfare Wardens," Survey Midmonthly (February 1942), p. 39; Editorial, "Civilian Casualties," Survey Midmonthly (April 1942), p. 117.

^Dan D. Reed, Thomas H. Reed, "Insurance for War Damage," Survey Graphic (February 1942), p. 68; Editorial, "War Damage Insurance," Survey Midmonthly (July 1942), p. 201.

X Elizabeth Wickendon, "War Risks and Security," Survey Midmonthly (May 1942), p. 131; Rilla Schroeder, "Here in Washington," Survey Midmonthly (July 1942), p. 200. 56

Other phases of civilian relief receiving attention were; Red Cross services at home and abroad, and how the relief sent by different war re¬ lief agencies gets through and is used.

Industry.- There were six articles and sixteen editorials concerned with industrial problems. Mobilization of man power for essential indus¬

tries, and prevention of strikes were discussed by article and editorial.

In the mobilization of man power for production, the protection of labor

standards was urged; and shortened hours to increase efficiency were recom¬ mended by many of the government agencies.^

The Survey reported editorially that "A serious weakening in estab¬

lished child labor standards is reported from many directions," and that

there were reports of increasing employment of minors in defense areas.

In the same editorial attention was called to legislation in some states

to exclude children from school for as long as six weeks for farm work;

and to the petition of sugar and fruit growers for suspension or relaxing

of laws regarding the employment of children in these industries. Another

editorial gave policies formulated by the Children’s Bureau, regarding em¬

ployment of children in agriculture, which were approved by the United

States Employment Service, United States Department of Agriculture, and

the Office of Education. These policies stated that school and home were

full time duties for children under fourteen years, and they should not be

employed in farm work outside their own homes except in extraordinary emer¬

gencies; and that the education of children above fourteen years should

not be interrupted unless no alternative source of labor could be found.

Maintaining protective legislation for women who must replace men in

■^Editorial, "The Human Factor," Survey Midmonthly (August 1942), p. 218. 37 industry, breaking down prejudice against them, and aiding them in the care of their children was discussed by Beulah Amidon.^-

Civil Liberties, and Minority Groups.- There were thirteen articles and eight editorials on these combined problems. The Survey editorially called attention to a recent bulletin of the American Civil Liberties

Union in which it was shown that the wartime gains and losses in civil liberties had been about equal. The Survey said this was more heartening than 1917 would have shown but "It is well worth consideration by citizens concerned lest in the war emergency we imperil the very freedom we seek to safeguard." According to the report of the Civil Liberties Union, and other editorial comment in the Survey the military evacuation of American citizens of Japanese ancestry from the West Coast, along with Japanese aliens, without examination of their loyalty caused some concern.^

An interpretation of the Quakers' attitude against war, and a re¬ counting of some of the rehabilitation work done by them, as conscientious objectors, in foreign countries during the first world war was given by one writer.3

The Survey called attention to a protest to President Roosevelt by the National Federation of Settlements against discriminatory practices against all minority groups, particularly the Negro, in opportunities in

Editorial, "Child Labor," Survey Midmonthly (August 1942), p. 219; Editorial, "Child Labor," Survey Midmonthly (April 1942), p. 121; Beulah Amidon, "Arms and the Woman," Survey Graphic (Way 1942), p. 244.

Editorial, "Civil Liberties," Survey Midmonthly (August 1942), p. 218; Editorial, "Contribution to the War Effort," Survey Midmonthly (October 1942), p. 274.

Rufus M. Jones, "A Great Experiment," Survey Graphic (August 1942), p. 554* 38 all of the armed forces, and employment in defense industries ; and that all citizens should be accorded all rights as guaranteed by the Constitu¬ tion of the United States.* The November 1942 Survey Graphic was a spe¬ cial number which dealt entirely with problems of the colored peoples of

America.

Health.- The problems of health were dealt with in thirteen articles and five editorials. There were problems of shortages of professional personnel. One article surveyed the medical personnel of the United States and its distribution. Another writer urged more women to enter the nur¬

sing profession for service in the emergency and for a post war career.

An intensified campaign against venereal disease was urged. And another

article reported on the reduction of commercialized prostitution in areas

of concentration and defense industry on the West Coast.^

Rehabilitation of the army rejectees was given much concern. Among

proposals for plans of rehabilitating them was that of Dr. Hugh Cabot,

who suggested dealing only with defects that could be quickly and effec¬

tively corrected; and that the rejectee be required to have defects reme¬

died unless dangerous to life. According to his plan, the work would be

done and paid for by the government, preferably by the army and navy

medical corps.^

Health on the home front, particularly, was given attention in a

^Editorial, "Discrimination," Survey Midmonthly. (January 1942), p. 21. 2 George Perrott, Dorothy Holland, "The Nation’s Health Resources," Survey Graphic (March 1942), p. 139; William F. Snow, "No War Boom in Venereal Disease," Survey Graphic (March 1942), p. 125; Joanna C. Colcord, Fighting Prostitution," Survey Midmonthly (August 1942), p. 214.

^Hugh Cabot, "The Lesson of the Rejectees," Survey Graphic (March 1942), p. 120. 39 special number of the Survey. In articles in this issue, more and better health officers were called for; and another writer said thst health should be regarded as not only a wartime necessity but as the peacetime aspiration of a democratic society. The Survey said Selective Service

figures had been necessary to convince the American people that neglect of health is neglect of the nation’s defenses, and they urged that it was

time to make medical and health care and health opportunity available to

all the people.^

Community and War.- Ten articles and six editorials were concerned

with the community in war time. Receiving most attention was the problem

of organization of the community’s resources to meet the changes which

had come to them because of industrial conversion and expansion and great¬

er employment. These changes, according to one writer, include housing,

rubber and oil shortages, increases in delinquency where prevention pro¬

grams had not been broadened; increases in illegitimacy, drunkenness, and

evidences of a growing amount of child neglect. Other articles and edi¬

torials on the community in wartime were "Coordination Needed," "Listen

Washington," "War and Welfare," and "The Home Front." How effectively

social agencies were taking part in civilian defense plans was discussed

by one writer who said that in the communities studied day care for chil¬

dren of working mothers was first among community war service activities.^

%aven Emerson, "Mobilize the Civil Health Army," Survey Graphic (March 19420? p. 106; C. E. A. Winslow, "The Health Front in a People's War," Survey Graphic (March 1942), p. 151; Editprial, "For a Strong Na¬ tion," Survey Graphic, (January 1942), p. 7.

^Bradley Buell, "Existing Agencies Tool ïïp," Survey Midmonthly (September 1942), p. 239; Joanna C. Colcord, "Social Agencies in the De¬ fense Set ïïp," Survey Midmonthly (October 1942), p. 265. 40

Child Protection, and Delinquency.- The protection of children from the effects of war was shown to be of great concern at this period. There were seven articles and seven editorials on childhood and delinquency.

It will be noted that the material on this problem is in some instances very closely connected with that on organization of the community’s re¬ sources. Highlighting the material under this heading was a series by

Niles Carpenter, Dean of the School of Social Work, University of Buffalo,

New York, who said that whatever else was lost from the then present level of living during the war period, the health and welfare of children must be maintained. There were editorials concerning special plans regarding protection and care of children in event of enemy action.

Another phase of the child protection problem was that of the day care £>r children of working mothers. In an article, Kathryn Close said that much had been said and many plans made concerning this care but that not much had been done other than form committees and make surveys. The

Survey commented in an editorial that the Douglas Aircraft Company, forced by lack of facilities in a field generally considered by social workers to be a community responsibility, had announced their intention of opening a nursery for the children of the four thousand women employees of its

Santa Monica, California branch.^

Jacob Kepecs, of the Jewish Children’s Bureau of Chicago, stated in

an article that the states had proved their inability to cope with the

%iles Carpenter, "Social Priority Number One," Survey Midmonthly (December 1941), p. 547; Editorial, "Children," Survey Midmonthly (March 1942), p. 82.

^Kathryn Close, "While Mothers Work," Survey Midmonthly (July 1942), p. 197; Editorial, "Concerning Children," Survey Midmonthly (September 1942), p. 247. 41 problem of delinquency, and that a national policy and a national program to deal with it were needed. Another writer believed that much was to be gained through the preservation, strengthening, and enlarging of the exist¬ ing welfare services for youth, and more effective coordination of them all.1

Housing.- Problems of housing were concerned to a great extent with the housing of defense workers, and the shortage of housing materials.

There were three articles and eight editorials concerned with this problem.

In an editorial early in the war the Survey said that Congress should im¬ mediately pass an appropriation for defense housing; that low income groups

needs should have priority over the needs of higher income families, and

that as far as was compatible with essential war production needs, the

public housing program should be continued during the war, if only in the

interest of morale and health. Other editorials concerned the amendment

to the Lanham Act, providing an appropriation for war housing; and the

faulty liaison among Washington agencies controlling housing priorities.

The housing of war workers in a trailer community was described by James

E. Cody of the Federal Housing Authority. How total war had hit housing

through the trek of industrial workers to plant areas, and through the

critical shortage in construction materials was told in an article by

Henry M. Propper of the Citizens Housing Council of New York. Other edi¬

torials had to do with the government rent control program to stabilize

1Jacob Kepecs, "Youthful Delinquency," Survey Midmonthly (December 1941), p. 554; Eleanor T. Glueck, "Juvenile Delinquency in Wartime," Survey Midmonthly (March 1942), p. 70. 42 rents in defense areas.^

Aliens.- Four articles and four editorials dealt with the handling of aliens in this country, and chiefly with reference to alien Japanese. Early in the war the Survey carried a statement of policy concerning Axis aliens in this country which had been issued by Francis Biddle, Attorney General, in which he recognized the loyalty of most aliens in the country and said

"We must foster their loyalty and encourage it. At no time ... will the government engage in wholesale condemnation of any alien group." The later military evacuation of Japanese aliens (and citizens of Japanese descent) from the West Coast was discussed in articles and editorials, as to the me¬ chanics of the evacuation, the aid that social agencies gave, and also as to the desirability of conserving as assets the friendly aliens of enemy nation¬ ality in the country.2

Recreation.- Problems of recreation for soldier and civilian were discussed in four articles and four editorials directly concerned with this subject. The Survey commented that in wartime recreation not only assumes

8dded importance, but its directions must be revised; that while the first need, recreation for men in the armed forces, is met by the Army, the civilian population at large is responsible for that of men on leave and

^Editorial, "Homes," Survey Graphic (January 1942), p. 6; Editorial, ^bout Housing," Survey Midmonthly (February 1942), p. 52; Editorial, "War Housing," Survey Midmonthly (October 1942), p. 277; James E. Cody, "Ser¬ vices in a Trailer Community," Survey Midmonthly (November 1942), p. 295; Henry M. Propper, "Total War Hits Housing," Survey Graphic (July 1942), p. 341; Editorial, "Rent Control," Survey Midmonthly(April 1942). p. 122.

^Francis Biddle, "Axis Aliens in America," Survey Graphic (January 1942), p. 13; George D. Nickel, "Evacuation: American Style," Survey Midmonthly (October 1942), p. 262; Editorial, "Enemy Aliens," Survey Midmonthly (February 1942), p. 49; Loula B. Lasker, "Friends or Enemies," Survey Graphic (June 1942), p. 277. 43 away from their cantonments. The internal makeup of the United Service

Organization was given in one article. In another article a member of the

Joint Army and Navy Committee on Welfare and Recreation discussed the pro¬ vision of recreation and leisure time activities by the Army and Navy.

Recreation for workers and civilians in general, during wartime was dis¬ cussed in an article by a member of the Office of Defense Health and Wel¬ fare Services, and in an editorial entitled, "Recreation in Wartime.

Conservation of Food and Other Essentials.- Three articles and four editorials were directly concerned with the conservation of food and other essentials. Total use of modern nutritional knowledge, more production of protective foods, more and better food education, and greater attention to the diets and nutrition of defense workers and others exposed to spe¬ cial stresses and strains, was urged, by one writer. Editorials dealt with shortages of automobiles and automobile tires, and the adjustments that people will have to make in their means of transportation. Rationing as a means of distributing foods, in which shortages occur, with regard to backs and stomachs rather than pocketbooks, was discussed by Mildred A.

Edie.2

War Financing and Social Work Maintenance.- These related problems were discussed in four articles and two editorials. Rilla Schroeder

^Editorial, "Leisure Time," Survey Graphic (January 1942), p. 8; Ray Johns, "TJ. S. 0. An Experiment in Organization," Survey Midmonthly (Novem¬ ber 1942), p. 291} Raymond B. Fosdick, "The Leisure Time of a Democratic Army," Survey Graphic (June 1942), p. 280; Mark A. McCloskey, "Priorities for Play," Survey Graphic (March 1942), p. 137; Editorial, "Recreation in Wartime," Survey Midmonthly (May 1942), p. 145.

2Frank G. Bowdreau, "Food for a Vital America," Survey Graphic (March 1942), p. 128; Mildred A. Edie, "Rationing for Civilian Strength," Survey Graphic (March 1942), p. 143. 44 called attention to a statement in President Roosevelt's annual budget message in which he said that those civilian services basic to the needs of human life could no longer be considered non defense expenditures, but must be regarded as a part of the war effort. The War Chest, the accepted solution to fund raising for private agencies, was discussed in articles by Allen T. Burns, Director of the National Budget Committee for War Re¬ lief Appeals, and by Kathryn Close of the Survey Staff

Peace and Reconstruction.- Three articles and one editorial dealt directly with this subject. One writer said that the Christian ideal of human service, above personal gain or governmental coercion, was the only motivation which could lead to a just and durable economic peace. Another writer believed that we can no more reach a final solution to internation¬

al problems than we can the problems within the family or local community,

but that we must collaborate with others throughout the world who share

our faith, and pool our resources and energies for peace as we have pooled

our men and materials to win the war. Special reference to plans for post

war living was made in an article by Michael Straight of the Editorial

Staff of "The New Republic" in which he cautioned against repeating the

mistakes of 1918, and advised that we keep our wartime gains such asî no

discrimination in factories, and the government role in initiating enter¬

prise that has been so needed in America. He said: "We have sworn to

fight a United Nations war. Then swear, now, to live a United Nations

^Rilla Schroeder, "Here in Washington," Survey Midmonthly (February 1942), p. 48; Allen T. Burns, "300 Strong since Pearl Harbor," Survey Mid- monthly (September 1942), p. 227; Kathryn Close, "Directions for Giving," Survey Midmonthly (March 1942), p. 67. 45

Peace. Make it the kind of world our men think they are dying for."l

Bradford S. Abenethy, "No More 'Religion as ïïsual'y Survey Graphic (April 1942), p. 196; Vera Micheles Dean, "Power and the Peacemakers," Survey Graphic (July 1942), p. 509; Michael Straight, "The Fight for the Future," Survey Graphic (June 1942), p. 295. CHAPTER VI

THE PROBLEMS OF WAR AS SEEN IN THE PROCEEDINGS OF THE

NATIONAL CONFERENCE OF SOCIAL WORK FOR 1942

Organizetion of the Conference

The 1942 meeting of the National Conference of Social Work was held in New Orleans, Louisiana, May 10th to 16th. Five months before, the Uni¬ ted States had been attacked at Pearl Harbor by the Japanese; and thus another Conference was called upon to face wartime problems. The atten¬ dance at this Conference was three thousand, two hundred twenty-seven.

The president of the conference was Shelby Harrison, General Director of the Russell Sage Foundation. First, second, and third vice presidents were, respectively, Wilfred S. Reynolds of Chicago, Michael M. Davis of New York

City, and Betsey Libbey of Philadelphia. The treasurer was Arch Mandel of

New York City; and Howard R. Knight of Columbus, Ohio was the general sec¬ retary. Committees of the Conference were those on Nominations, Program,

Resolutions, and Time and Place.

Articles on War Related Problems

It has been pointed out that the United States had been at war for five months when the 1942 Conference was held. Although actual war had come suddenly, for many persons in the country the spirit of war already prevailed, for many young men of draft age had been called from their homes in the national military training program. And so the Conference met with full recognition of its obligations and difficulties.

The Community and War.- Various aspects of community organization in

46 47 their relation to the war are discussed in five papers included in the Pro¬ ceedings for 1942. One speaker was concerned with the community problems created by new factories and expansion of existing plants resulting in large concentrations of families in areas planned for much fewer people; concen¬ tration of many men in training camps near towns; and labor shortages which were being filled by women. He said communities must provide for the indi¬ vidual human needs which follow dislocations and hardships of war; they must provide care for the children of working mothers, and civilian protection against enemy attack. He felt that the basic problem in organizing the com¬ munity in wartime was how to reconcile the necessity for local initiative and responsibility with an equal necessity for Federal guidance and financial assistance.

Social work’s responsibility in the development of care for children of working mothers was presented by Cathryn S. Guyler, Field Secretary of the National Association of Day Nurseries, who pointed out that needs for day care of children will differ in each community. Social workers must help to define the type and extent of day care needs, and the quality and extent of resources that are available in the community; they must also aid in the establishment and operation of the centers and offer a community wide consultation service to mothers who are working and concerned about their children. A continuous case work service, adequate health program c and sound child development program must be assured.

The problem of the use of serious volunteers by Councils of Social

(Since all footnotes in this chapter refer to material in the Proceed¬ ings of the National Conference of Social Work for 1942, hereafter only author, title, and page number will be given.) 1 Fred K. Hoehler, "Community Organization," pp. 237-45.

^Cathryn S. Guyler, "Social Work Responsibility for the Development of Day Care," pp. 440-50. 48

Agencies and agency executives was discussed by Katharine R. Van Slyck,

Executive Secretary of the Junior Leagues of America, who said that a vol¬ unteer will be effective in direct proportion to the degree of utilization of his or her particular interests and qualifications. She thought there was need for close working together of Councils of Social Agencies and

Civilian Defense Volunteer Offices now; and for councils to keep the pur¬ pose and structure of the C. D. V. 0. after the war as the community's cen¬ tral volunteer bureau. As a result of this, councils will have broader influence and scope, and a larger channel of interpretation for their mem¬ ber agencies. The Office of Civilian Defense and its services to states and communities in organizing defense at home, and the recruitment of vol¬ unteers for all purposes was presented by another speaker.^

Donald S. Howard, Research Assistant for the Russell Sage Foundation, enumerated eight factors that influenced public welfare and social service programs as a result of the war. He also calls attention to the need for

social planning with new alliances and more cooperative effort, and to the

n unprecedented opportunity for enlisting volunteers.

Industry.- Three papers in the 1942 Proceedings discussed different

phases of industry. Labor action and legislation during and since World

War I was reviewed and cited as cause for fewer difficulties in the field

of labor than was the case in 1917. This speaker said that those who con¬

tended for scrapping those statutes as being impediments to production

^Katharine R. Van Slyck, "The Awakened Volunteer Interest," pp. 246-54; Jonathan Daniels, "Mobilizing Civilian America," pp. 45-56.

^Donald S. Howard, "Impacts of the War upon Social Services," pp. 290- 505. 49 were either ignorant of history or had deliberately overlooked the chapter on labor policies in the last world war. The work of the National Labor

Relations Board, and later the War Labor Board, received some credit for the comparatively few labor difficulties that have occurred during this war.^-

The unemployment which resulted from the conversion of automobile plants to war production, it was pointed out by R. J. Thomas, President of the United Automobile Workers, (C. I. 0.) could have been avoided by bet¬ ter planning; and was indicative of the fact that Labor must hold itself responsible for seeing that such a condition does not occur immediately p after the war or after a short post war boom period.

Other problems of industry dealt with better planning to utilize to

the fullest our labor supply; and with the need for speedy conversion of

peacetime plants to large scale war production.^

Health.- Health problems were discussed in three papers. Asserting

that health on the home front is as important, in total war, as on the war

front, I. S. Falk, Director of the Bureau of Research and Statistics of

the Social Security Board called for the legislative and administrative

action to: strengthen existing health programs, establish temporary and

permanent disability insurance and hospitalization payments, broader pro¬

grams for general health and medical services, and enactment of a broad

and long range program as rapidly as possible. The lack of medical

^"Gerard D. Reilly, "Industrial Relations in Wartime," pp. 148-57.

*Tl. J. Thomas, "Unemployment Due to Wartime Changes," pp. 167-75.

^Robert K. Lamb, "Man-Power Mobilization for War Production," pp. 158-66. 50 services particularly in war production areas was stressed by Dean A.

Clark of the United States Public Health Service. He expressed the belief that little improvement would be made until "active responsibility for plan¬ ning and providing medical as well as public health services is concen¬

trated at local, state and Federal levels" in a way that will allow coor¬

dinated planning and action.'*'

How medical social workers cooperated with the Selective Service

Boards in New York City in a program of rehabilitation of rejected men,

for reclassification or to ensure fitness for civilian work was told by

Theodate H. Soule.^

Civilian Relief.- Separation allowances to service men's families, re¬

garding which three bills were then in Congress, were discussed in two

papers. One speaker expressed the belief that an allowance for the imme¬

diate family of a man in the armed forces should be considered as part of

his pay, and therefore not subject to investigation any more than the

wage or salary he would receive in private industry.^ Under pending bills

the wife would receive £40.00 per month—£20.00 allowance from the govern¬

ment and £20.00 allotment from her husband—with one child she would re¬

ceive £50.00, and £10.00 for each additional child. Questions were also

raised as to the sufficiency of these amounts and the administration of

the funds appropriated for the allowances.

Another phase of civilian relief was touched upon by BeWitt C. Smith,

■*■1. S. Falk, "Mobilizing for Health Security," pp. 200-09; Dean A. Clark, "Health Needs of War Production Areas," pp. 210-15.

^Theodate H. Soule, "Medical Social Workers and the Selective Service," pp. 268—75.

^Helen R. Jeter, "Separation Allowances," pp. 276-89. 51

National Director of Disaster Relief for the American Red Cross. The or¬ ganization of communities for disaster preparedness which is in effect throughout the country can be utilized to whatever extent may be needed in the event of distress occurring from enemy action.1

Aliens.- In two papers the mass removal of aliens end Japanese citi¬ zens from strategic military areas on the West coast was discussed in terms of the machinery used to accomplish the removal; questions of the effect it may have upon the persons removed, and the general cooperative atti¬ tudes of the Japanese.^

Post War Planning.- Two speakers considered different aspects of post war planning. Leonard Outhwaite of the War Production Board called atten¬ tion to the lack of a comprehensive and well coordinated program of rehabi¬ litation, and urged the adoption of a program which would comprehend all types and conditions of men, and have all the modern services and resources that the cases may require. Vera Dean of the Foreign Policy Association, considered post war plans for peace, and urged that our war efforts must serve as the prelude for responsible peacemaking. She outlined a seven point program of post war reconstruction based on principles of interna¬

tional collaboration.^

Standards of Living.- Leon Henderson of the Office of Price Adminis¬

tration, said that though production of consumer goods would soon be down

DeWitt C. Smith, "Organizing for Disaster Preparedness," pp. 255-67. 2 Jane M. Hoey, "Mass Relocation of Aliens," pp. 194-99; Robert K. Lamb, "Mass Relocation of Aliens," pp. 186-94. Z Leonard Outhwaite, "The Physically Handicapped in the War and Post War Period," pp. 489-98; Vera Michales Dean, "Aftqr Victory - What?", pp. 66-78. 52 to 1955 levels our living standards would not, because there would be rela¬ tively no unemployed.-*- He discussed changes in living standards from the point of consumer shortages in certain things such as automobiles; but he predicted sufficient food and other essential goods for the civilian popu¬ lation if they are equally distributed.

Minority Groups.- One paper dealt with the effect of the war on the

status of the Negro, with particular reference to attitudes of the Adminis¬ tration, the creation of the Fair Employment Practices Committee, and the

attitude of union leadership.2

Conditions in Other Countries.- Honorable Malcolm MacDonald, High

Commissioner for the United Kingdom, told of new social services in Bri¬

tain which were created out of war necessity.^ Among these new services

were: compulsory canteen service in industries; mobile canteens for use in

neighborhoods where vital machinery had been smashed, such as water and

gas mains; various kinds of air raid shelters with beds, trained nurses,

doctors, and cleansing squads.

^Leon Henderson, "Changes in Our Standard of Living," pp. 22-52.

^Lester B. Granger, "Negro Citizens in a Democracy at War," pp. 119-28.

\alcolm MacDonald, "Wartime Social Services in Britain," pp. 55-44 CHAPTER VII

SUMMARY AND CONCLUSIONS

There appeared to have been very little difference between the organi¬ zation of the Survey during the first year of World War I and the first year of World War II, especially in so far as might relate to the material of this study. The editor was the same for both periods, and some members of the editorial staff served during both 1917 and 1942. However, because the Survey was published weekly in 1917 and semi-monthly in the latter period, there was much more material about various problems in their rela¬ tionship to the war during 1917.

The National Conferences of 1917 and 1942 had no differences of or¬

ganization which would have any bearing on this study. One does get the

feeling that the 1917 meeting was less calm than the more recent one.

This ides is based on the unprecedentedly large attendance, and upon the action of the Conference in, for the first time in its history, adopting

resolutions in support of national issues. It is not difficult to under¬

stand, if this group of social workers were somewhat excited, since war

had been declared only two months, and they had only the experiences of

foreign countries at war during the previous two years to guide them in

planning for war time experiences. In contrast to this, the 1942 Confer¬

ence was held five months after the entrance of the United States into

World War II, and in planning for the future its members not only had the

written experiences of their own country and foreign countries during the

first World War, but many had themselves been social workers during that

war, and could the more confidently advance to meet whatever lay ahead.

53 54

While the material for each period studied shows the big problems centered around the same phases of living, certain differences in the di¬ rection of the problems and the emphasis upon them is seen in the 1942 period.

Problems of industry, which assumed major importance in the first year of both World War I and World War II, were during the second period more directed toward difficulties of manpower mobilization and the conver¬ sion of industries from peace time to war time production, although main¬ tenance of protective legislation and standards for all working groups was again given much attention. Better understanding between management and employees as to the needs of each, and more and better machinery for the arbitration of disputes made fewer the problems of strikes in industry du¬ ring the second World War.

The problems centered around health, a major concern for both war periods, were those related to maintenance of health for civilian as well as for soldier. In the first year of both wars shortages of medical per¬ sonnel for civilians was a problem. In each period, also, the large nim¬ ber of draftees rejected for physical reasons called attention to the lacks in our public health programs and brought forth calls for a govern¬ ment program of health insurance. Although less seemed to have been writ¬ ten on protecting the armed forces from venereal diseases and on cleaning out prostitution and vice from the camp areas in World War II, this may have been due to the progress that had been made against these problems in most communities since the last war, and again it may have been due to a more calm but quite as intense approach to the problem in 1942. More at¬ tention seemed to be directed to the rehabilitation of rejectees in 1942 but there is little evidence of definite action. 55

In the problems of civilian relief, during the first year of World

War II, there seemed a change of emphasis and some difference In the direc¬ tion of the problem. Where in the first year of World War I the relief of civilians and soldiers, in foreign countries was the major part of this problem, in 1942 the situation was reversed and plans for the protection axi relief of civilians at home, from enemy action, appeared to assume first importance. This change in emphasis was of course due to the much greater threat of physical damage to our own country and people than the United

States faced during the first World War.

Civil liberties and minority groups ranked fourth in the war related problems for the two years studied. More of the material written in 1917

seemed to be concerned with the right to express one’s opinion about the war, orally or through the press, and with the right to refuse military

service on the basis of one’s conscience; while in 1942, the problems of

civil liberties became more those of racial minorities, including the Ne¬

gro, and Japanese Americans living on the West coast. This was undoubted¬

ly due to the more racial aspects which the present conflict appears to

bear on all fronts.

During the first year of each of these wars there was concern lest

some of the every day social work activities be suspended because of lack

of finances, but in 1942 concrete action was taken by the private agencies

when many of them coordinated their efforts for money raising by the forma¬

tion of the War Chests.

It seemed that there were more expressions regarding plans and bases

for peace and reconstruction in the first year of World War I than in the

first year of the second World War. This may have been a result of what

was generally felt to be the unfavorable peace terms of the first World 56

War, or it may have been that the second World War was being fought on a much larger scale and with more iminent danger to the life and safety of the people of the United States. Therefore early thought or plans for peace and reconstruction had to give way to plans for defense and civilian relief.

Conservation of the food supply claimed attention in both periods of our study. In 1917 this problem was closely allied with that of liquor prohibition, which was not found to be an issue during the first year of

World War II. In both periods some sort of control of food and other es¬ sentials by the government was seen as one of the big solutions to the problem, with new shortages and rationing of more commodities in the first year of the second War than in the first one.

Papers of the National Conference of Social Work in each of the periods studied showed emphasis was placed upon the same problems and to about the same degree as was indicated in the material from the Survey.

Also, the same shifting of the relative importance of different problems during the first year of World War II from the position occupied in World

War I was noted in the Conference papers. Thus in the 1942 Conference

Proceedings problems of organization and coordination of the community’s resources for the protection and welfare of its citizens appeared to be of prime importance, with the problems of industry, health, and other pha¬ ses of civilian relief following closely.

In general, this study shows that the major problems with which so¬ cial workers and leaders in social welfare are concerned during war time are largely the same as those that receive their attention in time of peace—the work, health, and community life of the people—the more basic and concrete problems of every day living. War does intensify these 57 problems, and does alter their relative importance, and sometimes changes their direction, according to the intensity and breadth of the warfare and the area of actual combat. BIBLIOGRAPHY

Gruenberg, Sidonie Matsner (ed.). The Family in a World at War. New York; Harper and Brothers, 1942.

Hamilton, Gordon. Theory and Practice of Social Case Work. New York: Columbia University Press, 1940.

•Johnson, James W. The Meaning of War. New York; Fleming H. Revel Co., 1959.

Lowry, Fern (ed.). Readings in Social Case York. New York: Columbia University Press, 1940.

Page, Kirby. National Defense. New York: Farrar and Rinehart, 1951.

Speier, Hans, and Kahler, Alfred (ed.). War in Our Time. New York: W. W. Norton and Co., 1959.

Waller, Willard (ed.). War in the Twentieth Century. New York: Random House, 1940.

Young, Pauline V, Social Case Work in National Defense. New York: Prentice-Hall, 1941.

Handbook of Learned Societies and Institutions. Washington: Carnegie Institution, 1908.

Proceedings National Conference of Social Work. 1917 and 1942.

Survey Graphic. Vols. XXX, XXXI.

Survey Midmonthly. Vols. XXXVIII, XXXIX, LXXVII, LXXVIII.

58