rt ba tereg ei i a7? Peart et oe ’ Y: : te Nesorea’ gees - a ; i petty eke zi : aye} tisSretiy ohare ot sue . , bes i? ; : Setrspate pees oe Cea a ee, ee, = : ‘ : : eens. % : erat 3g - " a r = " ee Bet ond coors st . Pad Tans , . yeoae vir we “ ; Resta ncnris zt peiae Lip Rye t : ; ; : = Z E tty aby: at mies eeisihy hts : ea 5 E a aes se me arte { ' ; : : : = iy gr ore a : - ta 4 : Be east $ Seeerigheie beers toi. = ‘ Ser eee : : 2 3 5 soos : : > . ‘ * Ee y eae es Gi bt ves ee ¥s a : tm aio z ~ erties “ = La crate 3 oe isgracay aay aay ry hehixs ert + bs te ORE AN, ) ake vy ts rie vt ag Oe WT 0 Be ane (Se Senien POM ema das seo pe ee eeecr SS (~ FER 13 1928. e XY &/ | coon, gen HT’ 453) -2D7.1926 | Douglass, H. Paul 1871-1953. How shall country youth be served? Digitized by the Internet Archive in 2022 with funding from Princeton Theological Seminary Library https://archive.org/details/nowshallcountryyOOdoug Institute of Social and Religious Research HOW SHALL COUNTRY YOUTH BE SERVED? H. PAUL DOUGLASS The Institute of Social and Religious Re- search, which is responsible for this publice’.on, was organized in January, 1921, as the Com- mittee on Social and Religious Surveys. It conducts and publishes studies and surveys and promotes conferences for their consideration. The Institute’s aim is to combine the scientific method with the religious motive. It co- operates with other social and religious agen- cies, but is itself an independent organization. The directorate of the Institute 1s composed of: John R. Mott, Chairman; Raymond B. Fosdick, Treasurer; Kenyon L. Butterfield, Recording Secretary; James L. Barton, W. H. P. Faunce and Paul Monroe. Galen M. Fisher is Executwe Secretary. The offices are at 370 Seventh Avenue, New York City. HOW Bact FEE TS ee, COUNTRY YOUTH: BE SERVED? Aare DUD yi Obey Diigo RALSS WORK OF CERTAIN NATIONAL CHARACTER-BUILDING AGENCIES BY H. PAUL*DOUGLASS GEORGE H. DORAN COMPANY COPYRIGHT, 1926, BY GEORGE H. DORAN COMPANY HOW SHALL COUNTRY YOUTH BE SERVED? Pe PRINTED IN THE UNITED STATES OF AMERICA PREFACE This report is based upon a first-hand study of representative samples of the “rural” work of five national character-building agencies, namely, the Young Men’s Christian Association, the Young Women’s Christian Association, the Boy Scouts of America, the Girl Scouts, Inc., and the Camp Fire Girls. Less extensive collateral studies were also made of the work of the Junior Extension Clubs of the United States and State Ex- tension Services and of Sunday School Associations or Coun- cils of Religious Education where these were organized on a comparable basis. A brief narrative of the origin, conduct and formal methodology of the project appears in the Appendix.’ VIEWPOINT AND LIMITATIONS The rural work of these agencies is not the original nor the total work of any of them except of the Junior Extension Clubs. While, as among agencies, the proportion of the rural work varies greatly as compared with the total, in no case but the one just mentioned is it the principal field judged either by the general interest of the agencies themselves or by the repu- tation they enjoy.’ Again, while, as proclaimed by their names, all of the agen- cies studied exist primarily for the service of youth, some have a greater age-range than others and may, in their general work, have large ministries for adults. The rural work, on the other hand, is much more generally limited to minors. The great bulk of it is for boys and girls or young men and women who have not yet reached their majority. All the agencies, how- ever, are operated by adults, and all enlist considerable numbers 1 Appendix I and V. 2The “town and country” work of the Young Men’s Christian Association is 4 per cent. of the total. (International Committee, Bureau of Records, Bulletin 14, January, 1924.) No other agency has formally calculated its proportion. Vv vi PREFACE of them as leaders, constituents of varying degrees and financial supporters. The study, therefore, treats the agencies from the standpoint of their function of serving youth, and regards the adult constituencies as comprising local auxiliary forces for this purpose, although a relatively small part of their activities is expressly designed for adults and all participating adults un- doubtedly get incidental personal benefits. AUSPICES AND OBJECTIVES In undertaking the study, the Institute of Social and Re- ligious Research sought formally to associate with itself the national agencies concerned, and most of them, by official action, agreed to participation. The study was formulated and subsequently criticized by an advisory committee, which included persons especially competent in the field of rural in- terests or social investigation.* In its prosecution by the Insti- tute, it had the close codperation of many representatives of the agencies, both at headquarters and in the field, who spent many hours in helping the staff to secure first-hand objective information, in giving personal evidence, and in considering formulated results. A SIGNIFICANT RURAL PROBLEM A concrete situation—that is to say, the actual series of deeds and processes constituting the effort of these and similar agen- cies to help the people of the smaller American communities— presents a significant subject for social investigation. In trying to solve rural problems these agencies have, among other things, created a new problem; namely, themselves, their activities and relationships. The resultant problem has two obvious phases. First, it con- cerns the effort of agencies approaching rural civilization from outside to import into it certain novel ideas and practices be- lieved to be for the good of town and country youth. Secondly, the problem is complicated by the fact that this effort is put 8 See Appendix IT. 4For list of advisors and record of their participation, see Appendix IIT. PREFACE vii forth by numerous agencies each acting independently and all making somewhat similar claims for themselves; a circum- stance that incidentally involves rather frequent contacts with the same communities and people and thus with one another in the local field. The crux of the problem in its first phase is how to natu- ralize externally promoted movements within rural communi- ties. Concretely this means the process of securing like- mindedness on the part of the people of these communities throughout rural America as to the needs of boys and girls and how to supply them; such people, for example, as the small town merchant, the retired farmer, the country school- teacher, the village garage keeper and auto mechanic, the house- wife and clergyman both in the town and the open country, and the working farmer. It means carrying the process to the point where they become accustomed to organized partner- ship with the national promotional agencies in work for boys and girls until finally they come to regard such work as a recognized and permanent part of their own community life.° The objective of the study in this aspect was to determine how far what has actually happened is a genuine, sound and permanent process of social integration and how far it is some- thing trivial and forced—rather an attempted grafting of alien characteristics upon an unwilling and obdurate rural type than a legitimate naturalization. The second phase of the problem appears when rural people of the kind described above find numerous national agencies making simultaneous appeals to them in a given area or com- munity; and especially when more than one agency is already trying to maintain organization in a given place, to find leader- ship for it and to gain support by cultivation of the same public and youth constituency. Of this, extreme illustrations were found such as one furnished by a Connecticut pastor. “In my small rural suburb,” he said, “no less than five agencies are attempting to organize the life of young people constructively. First there were the Boy Scouts; then the Young Men’s Chris- tian Association. Next came the state through its rural ex- 5 For a fuller discussion of utilization, see p. 82 ff, viii PREFACE tension clubs for boys and girls. The public schools mean- while felt it their duty to organize and supervise the activities of their pupils out of school hours. Finally a fellow pastor attempted to promote organized Sunday-school classes through- out the community as part of the official method of the religious education movement.” How many like cases there are, how the agencies behave toward one another in such cases and how the communities feel about it became one of the keenest in- terests of the inquiry. THE MOTIVE OF THE INVESTIGATION The motives of the investigation were naturally not identical for the participating agencies and for the Institute. i} Oly) ae des OM IEG | t ‘ \ j . : i] | 1,4 oad a, 4 al { ‘ Lie. |. 7 ey i@ } \ ! ; Wiehe ; ¥ : } Mae male § ae nl ' y eV) A urs SS u PAG) DAG RA Ln “, A Nei Tha ct eee ‘ PM Se Be RYE A a \ , ai % oF ny, ) a j ¢ ey \ a Al ‘ | t t { ¢ sy) \ ’ : ’ 5 Le st ie it * A ay he’ y ~ Ry Ath yey a ; (* 4 WON OF FA) a Ae ane OR ‘ Gs j ’ tr thee Mp, Al bY ey od “\ Ns , ‘, A ‘ ' es Aas ‘ .) rg Ay | Moin " 4a) 4 oy , i Bare AO tah ta nies ‘ ‘ ‘ } 4 ‘ * +@ i. wit C ; ae ats | p x Ay ; v Ay & 1 d ' 4 9 Nas x i i? org 7 E ’ ve 4 ’ j f ‘ Al { , be yc ny 1, ayy I aay i fey a hy ARLENE I AY ‘ } * 1 / i | Ff . { hy A ' (7 ee . a | én yr 4 vi ? Lt wee, reer, 5 : 1 ¢ C é pr ‘ aN fh ; iii Tey 4 A 7 ) t 4 Va , Wt t ay , ra 4 . ees. | hs Vets ee Ly, PART I: THE FACTS IN THE CASE CHAPTER [| THE AGENCIES AND THEIR RURAL WORK Out of twenty-seven voluntary national agencies attempting to serve American rural communities on a philanthropic basis," this report covers the five already named in the Preface: namely, the Young Men’s Christian Association, the Young Women’s Christian Association, the Boy Scouts of America, the Girl Scouts, Inc., and the Camp Fire Girls. These were studied as the major representatives of the organized forces having as their main object the fostering of character-building processes among youth. No limitation to these agencies was adopted in advance, and field study in the sample territory included whatever similar agencies it found. Examples of a number of others, enum- erated in the Preface, were encountered, and are treated in the text. The five above named were, however, so much the most frequent and outstanding that statistical data are in the main confined to them. The potential beneficiaries of these character-building proc- esses are about 14,000,000 young Americans between the ages of ten and twenty years inclusive, who live on the farms and in the villages and small towns of the country, constituting all told about 74,000 communities.’ The label “rural’’ as applied to this study, coupled with the fact that small cities are included in it, raises an issue and 1This number is listed by the Conference of National Agencies Doing Rural Social Work in addition to governmental and constructive commercial agencies. 2 Morse and Brunner, The Town and Country Church in the United States, p. 39. (Institute of Social and eater Research.) 26 HOW SHALL COUNTRY YOUTH BE SERVED? points out an apparent discrepancy which should be cleared up in advance. Just as the study did not predetermine the particular agencies to be included, neither did it fix the populational limits of the field to be explored. This was a matter properly left to be settled by the usage of the agencies. The organized rural work was usually found around some center of population, It was discovered that the agencies that maintain separate “rural” or “town and country” departments frequently included in these departments the administration of work in cities of 10,000, and occasionally even larger, population. Moreover, the character- istic methods employed by some of the agencies in their pre- ponderant city work were rarely maintained in places of less than 10,000. In other words, while there is no sharp dividing line, work in places of 10,000 population and less is fairly homogeneous with that in the more strictly rural areas. A population of 10,000 is, therefore, used as the upward limit. Most of the rural work, however, falls in places of 5,000 popu- lation or less.? Before inquiring just where and how far they have gone in their work for youth in communities of such size, it is im- portant to introduce a little more adequately the agencies them- selves, particularly in their rural characters. THE AGENCIES IN THEIR RURAL ASPECTS The agencies are co-workers in behalf of American rural youth. But they also represent movements with separate his- tories and somewhat distinct atmospheres. Consequently, even when their rivalry is not overt or consciously pursued, there is implicit in them some measure of competition for the leader- ship of youth according to their particular ideas and ideals. The differences among them, as discovered by this study, are not so great as the agencies think they are, but they are nevertheless genuine and to be taken into account. For an understanding of these differences it is beside the mark to appeal to formal statements, official or other, based on 3 Table XVI. THE AGENCIES AND THEIR RURAL WORK 27 the total work of the agencies. As already explained, the rural work is but a minor fraction of the total, and some of the agencies have never clearly defined their purposes in rural effort nor separately enumerated its results. In any event, it was deliberately decided that the data of the study should be obtained directly from observation of the actual functioning of the agencies in the field. The characterization of the agencies in the following para- graphs, therefore, does not start with such abstractions as “Town and Country Department of the Young Men’s Christian Association” or “Rural Scouts.” The people and processes covered under these terms have been encountered in action in all parts of the United States and studied as social forces, partly, at least, naturalized in regions and localities. Much of the national or general tradition of the respective agencies has doubtless survived ; but they all have taken on local coloring and limitations. Whatever official version of their respective movements they may receive from headquarters is diluted by local understanding and merged with local characteristics. It is this actual resultant—the work as it has come to be in the hands of the smaller communities and their inhabitants—which is now summarized. It should be understood, however, that since the study did not develop systematic categories of com- parison in this field, the summary here presented is essentially the chief investigator’s interpretation of what he and his col- leagues found and felt. YOUNG MEN’S CHRISTIAN ASSOCIATION In its rural work the Young Men’s Christian Association is the most obviously religious of the agencies compared. This is unmistakable; although its recreational work is more out- standing in the minds of communities,* and though the lack of adequate religious effort is sometimes criticized. The an- nounced objective: “To help win boys to Jesus Christ,” is commonly taken with real seriousness; and personal Christian consecration and Christian vocation are very strongly stressed 4Table XCV, p. 157. 28 HOW SHALL COUNTRY YOUTH BE SERVED? in all the more general expressions of Young Men’s Christian Association work as found on the field. Beyond this explicit emphasis, the Young Men’s Christian Association is versatile in the forms of rural service under- taken, but opportunistic rather than philosophic in the choice of them. It is progressive in the search for new methods and devices, but perhaps less so in fundamental thinking. The movement is old enough to have developed a somewhat tradi- tional pattern of leadership, lay and professional—one pretty generally embodying a moderately conservative attitude in religious matters, though an attitude often decidedly progres- sive when compared with the position of the rural church. YOUNG WOMEN’S CHRISTIAN ASSOCIATION The Young Women’s Christian Association is more original, liberal and independent in its expression of religion. Con- sequently, in local verdicts it is sometimes termed “less re- ligious” than the Young Men’s Christian Association. It re- flects locally a rather definite reaction from conventional ec- clesiastical limitations. In other words, its adherents are not exactly the type of women who chiefly make up prayer meet- ing and women’s missionary society circles. They are more largely drawn from the ranks of economically independent women, a fact which accounts for their somewhat more varied contacts with the world of affairs than a strictly home environ- ment affords. The central problem of development is gener- ally phrased as one of personal adjustment to idealistic ends, with a strong sense that woman has a special version of this problem. Some of the outstanding leaders of the Young Women’s Christian Association approve the description of their movement as one of socially minded Christian feminism in which the realization of self and of sex in a world of social responsibility is an indivisible aim. The problem is worked out, characteristically, in an atmosphere of eager spiritual striv- ing which sometimes amounts to agitation. To a considerable degree this attitude towards life is shared by non-professional local leaders and is conveyed more or less fully to girls’ groups. THE AGENCIES AND THEIR RURAL WORK 29 According to the testimony of representative citizens, how- ever, the rank and file of supporters in small communities do not always sense this atmosphere, but are inclined to think of the Young Women’s Christian Association as a semi-philan- thropic movement to care for poor or bad girls. BOY SCOUTS As a local movement the Boy Scouts unquestionably reflect the directness, aggressiveness and naiveté of organized busi- ness groups in America, projected into the realm of idealistic endeavor, ‘They appear to cherish a simple and unreflective faith in the value of manly and wholesome activities under forceful leadership of men of average and unpretentious moral standards, who are generous enough to give personal time to the interests of boys and to carry out a program definitely laid down. “Outing is three-fourths of Scouting’ impresses one as a slogan coming close to the facts. The character-building influence of the Scout virtues and the values of the specific achievements required for advancement are accepted as ob- viously good and self-demonstrating. What communities chiefly value in Scouting is the civic aspect of these accom- plishments. They are strongly believed to carry over into help- ful community life. Scouting, then, appeals to the kind, whole- some, honorable and rather inarticulately reverent man who is blessed with something of an outdoor spirit and is willing to acquire a fixed technique. This ideal, effectively phrased, has vastly impressed the lay mind of America. It has proved espe- cially welcome to educators as a supplement to their rather stilted required programs. It furnishes a simple and intel- ligible secular ideal which practical men, confident in straight- away promotional methods, can operate and be loyal to. It falls in with an era of organized business idealism and com- munity spirit expressed in the Rotary, Kiwanis and other men’s service clubs. Scouting has thus become the vehicle of one of the most impressive movements in behalf of youth measured either by its rapidity of growth or by the breadth of its appeal. 30 HOW SHALL COUNTRY YOUTH BE SERVED? GIRL SCOUTS AND CAMP FIRE GIRLS Agencies that do not have organization for intensive supervision, numerous local executives or close contacts with contiguous communities have less chance to carry any peculiar atmosphere and emphasis down into individual places. This was found to be true of the Girl Scouts and the Camp Fire Girls in the rural areas studied. They had been promoted almost entirely at long range, through literature and general publicity. It is doubtful whether one can fairly trace any particular set of characteristics in the local units of these or- ganizations that were studied. The impression conveyed was that they almost entirely took the color of their individual local leadership and had not very generally developed organizational traits. Possibly the Girl Scouts may be said to appeal to the idealism of professional and publicly active women of a some- what sophisticated and urbanized type, in contrast with the more domestic and esthetic type to whom the Camp Fire Girls movement is attractive. Possibly the former are rather more democratic in their local groups, and the latter more selective. Both organizations, however, clearly take their idealism more simply and objectively and less intensely and personally than the Young Women’s Christian Association. Both lack the tradition of ecclesiastical origins and express themselves rather in civic and social terms. It should not be forgotten, however, that this characteristic has sometimes particularly commended them to churches that are strongly desirous of keeping formal religion directly in their own hands. JUNIOR EXTENSION CLUBS Still a different version of secular idealism finds expression in the Junior Extension Clubs in agriculture and the house- hold arts promoted by the U. S. Department of Agriculture and cooperating extension departments of state educational de- partments. Their keynote is naturally vocational. They count on the character-building significance of associating boys and girls in purposeful activity of a youthful sort. The announced THE AGENCIES AND THEIR RURAL WORK 31 objective is to develop good rural neighborhoods and good rural neighbors and citizens, but this result is rather taken for granted than striven for by specific technical means. Increas- ingly, however, the Junior Extension Club is developing an educational technique and appealing to socialized motive. Thus another vision of life in behalf of youth is reaching organized form. So far it has simply assumed the presence of the rural church in country communities and has not formally or con- sciously become related to it. To some extent, it is true, it draws on the church leadership, but the larger contacts of the Junior Extension Clubs have been with the rural school. EXTENT OF THE RURAL WORK The location of the territorially organized rural work of the Young Men’s and Young Women’s Christian Associations and of certain rural work of the Boy Scouts is shown by region, states and counties or comparable districts in the Appendix.® This is very far, however, from being an adequate geographi- cal statement, since four of the five agencies concerned find half or more of their rural work in scattered units not under close territorial organization. The rural Girl Scouts and Camp Fire Girls are seldom territorially organized, except incidentally around cities. Of the total number of local units of the agen- cies in the fifty-three counties which were studied, 46 per cent. were not in intensively organized territory.° The agencies, on the other hand, report the particular locations only for their larger territorial units, and none of them tell anything as to the degree of occupancy of their organized territory. For these reasons no attempt is made to give a complete geographical statement of the total rural work of the agencies. Too much of it is diffused in unorganized areas, and much organized territory was found to be so thinly occupied that to indicate it on a map (say, by coloring) would be to emphasize a fact of little real geographical significance. The fifty-three sample counties covered by the study included 5 Appendix VII. 6 Table V., p. 39. 82 HOW SHALL COUNTRY YOUTH BE SERVED? seven not within the intensively organized territory of any agency. All but one, however, furnished examples of diffused and sporadic work of one or more agencies. Those counted as organized were not organized from the standpoint of all the agencies working in them. The ways in which each was actually organized and the degree to which their communities are occupied is the theme of the next chapter. Its revelations of the variety of methods of occupancy and of the degrees of internal saturation in territory assumed to be occupied prove how much more one needs to know than the bare presence of an agency in a given territory. Since the agencies have neither entirely defined nor closely located their total rural work, any measurement of it involves a certain element of uncertainty. All the agencies, of course, count members, of whom probably about 330,375 live in places of 10,000 and less, Their distribution by agencies appears in the first column of Table II.’ TABLE II—PROPORTION OF EACH AGENCY’S “RURAL” * MEMBERSHIP INCLUDED IN THIS STUDY (53 Counties) Members Total U.S.A. Included in this Investigation Agency (Estimated) Number Per Cent. VW M.Ch wah e bee hear 30,375 7 7,035 23 Boy Scouts taerk Gee eG 216,000 8,401 4 WW GAS Se ea 33,000 6,832 20 Csirl: Scouts i. 14 ae oe done 26,000 1,990 8 Camp Fire Girls ............ 25,000 1,197 5 Total ene 330,375 25,455 8 * The term “rural” is used to include all places with fewer than 10,000 inhabitants. t Members under 21 years of age. MEMBERS IN SAMPLE TERRITORY As shown in the second column of Table II, the study found 25,455 young Americans enrolled in the membership of the five 7 For the method of calculating these results, see Appendix IV., p. 240. It will be observed that relatively a much larger sample of the membership of the Young Men’s Christian Association and the Young Women’s Christian Association was secured than of the other agencies. Comparable data, how- ever, on a few points (for example, see p. 85) serve to confirm evidence drawn even from the smaller sample, while the relatively large number of cases involved was clearly sufficient to show trends. THE AGENCIES AND THEIR RURAL WORK 33 national agencies investigated in the fifty-three counties studied. It also found 5,544 boys and girls enrolled in Junior Extension Clubs doing work in agriculture and the rural domestic arts.® How far does this go toward serving rural youth in these counties? The facts are shown comparatively for thirty-three counties in Table IV.° At the most favored age (years 14 and 15) the five agencies are reaching only about 10 per cent. of the total youth popula- tion of these counties, and less than 5 per cent. in the next most favored age (years 16 and 17). In the best counties the com- bined work includes only: about one-sixth of the population of 10 to 13 years of age about one-fourth of the population of 14 to 15 years of age about one-fifth of the population of 16 to 17 years of age about one-fourteenth of the population of 18 to 20 years of age about one-sixth of the total youth population of 10 to 20 years of age. This tabulation does not, of course, measure the more per- vasive influence of the agencies nor the incidental but often recurrent ways in which they serve large populations besides members; but it does express the rather narrow limitations of their formal organizations of youth. In addition, the Junior Extension Clubs reach an average of about 8 per cent. of the total farm youth population in the counties where they exist, the highest percentage reached in a single county being about 16. WHAT THE SAMPLE PROVES The preceding paragraphs give the extent of the work for youth carried on in a representative sample of fifty-three coun- ties, in forty-six of which some of the agencies are territorially organized and in all but one of which there is sporadic and unorganized development of their work. Since the estimated 8 Table III. i “as 34 HOW SHALL COUNTRY YOUTH BE SERVED? total of rural membership of the five agencies is less than one- fortieth of the total rural youth population of the nation (as defined earlier in the chapter) it is obvious that most of the country is not occupied to any such extent. The memberships of the five agencies in the counties studied constitute, however, nearly 8 per cent. of the estimated com- bined national membership of the same agencies in communi- ties of 10,000 population and less as shown in Table II, while the membership of the Junior Extension Clubs in the counties studied constitutes about 9 per cent. of the national member- ship of those clubs as reported by the Department of Agricul- ture. Thus the samples are relatively large and are amply sufficient to illustrate the prevailing range and average of the facts where the agencies are typically organized.*° SUMMARY OF FINDINGS It appears, then, that on the most liberal computation, at least as measured by formal membership, all the agencies combined reach only a few of the potential subjects of character-building activity. The fraction reached by any single agency is_trifling indeed, and the best record stops very far short of the ideal, frequently quoted in commendations of the work, namely, to reach ‘‘the last boy in the county.” The pervasive influence of this body of work, as already con- fessed, has not been measured. Its broad area of secondary results may well include some of its major values. How creditable it is to have reached even so small a propor- tion of rural youth through formal organization obviously de- pends upon such issues as: (1) What did the agencies undertake to do? (2) How long have they been at it? (3) Has there been net progress, and at what rate? (4) How has this progress, if any, compared with the re- sources available? 10 For method of selecting the sample counties and discussion of the ade- quacy of the sample, see Appendix IV., p. 242. THE AGENCIES AND THEIR RURAL WORK 35 The actual position of the agencies themselves, as it exists on the field, may be generalized as follows: The reaching of “the last boy in the county” is palpably only rhetoric. With present resources, average men cannot do much more than they are doing. The work as a whole is very recent and is still in the experimental stage. Except for a distinct slump following the World War, the rate of progress on the whole is not dis- couraging. The real function of the agencies is to cast into rural communities the leaven of greater interest in youth, to select available places for service, and where discrimination is necessary, to pick the more promising youth in the hope that they may furnish leadership and support for a larger work in the future. If the agencies have a good defense in such attitudes, two further questions are at least reasonable: (1) Should not so small and recent a work be very plastic, teachable and cooperative? Has it any warrant for great self-assurance or dogmatism? (2) If it is not in position now or at an early date really to undertake a general service to rural youth, and particu- larly if it is not in position to attempt any far-reaching equalization of privilege and opportunity as between the more and the less favored regions and classes in the country, should it not frankly say so to its supporting constituencies, and base its claims upon reasonable probabilities of achievement? CHAPTER I, Continued TABLES TABLE III—JUNIOR EXTENSION WORK * (19 Counties +) Number of Communi- Number of Number of County ties Organized Clubs Members Chmberiand Me). 9 cn eo 16 23 284 Barnstable, lass.) a ke. ys os 28 287 Vrorcester, sWias6. iss teas 17 22 175 Hartrord, Conti, veereeue at 14 31 175 Nobroes SN IMNY re ata are 14 35 613 range “ING oe Sad sine bine s merne 15 31 290 ee NEAT VAR a woe 12 31 240 SNL esol. New Castle: Deland eet + 88 738 Spattanpure, o..Car.chwuer ys iz 12 248 Colbert Ata o ae eae eee 15 15 251 PharlanjpiBveiin. sc aceon 11 11 235 Fi ariord, Nid. ae yah ee vA 57 1,000 Coshocton, Ohig icc. es eames 4 6 155 Fairheld}) Ohio’ 4. Vinee see 5 9 see Wearandot; Ohio? Soci ve ee 28 179 Noble: India as gee ae oka 7 22 325 Weld) Colo. Wii Mula dane ws 40 292 Walla, Walla; Washi. 2.24 4 12 60 Total a sie Rane ee a 173 501 5,547 * Junior Extension Work is a term used by the Government for Boys’ and Girls’ Agricultural Clubs. : : _ t Tabulable information secured from only nineteen of the fifty-three counties investigated. 36 37 YESH HN SD HOSHHANS . we See ed . . . . - =) + . . . SSCOOCHANN ANANMMOOYS . TABLES SOSCAMMOM ONWOTNAS . . Bye S Ww eeeer eee seeee 8) aati "S9TJUNOD 99I4}-A}JY OY} JOIIT}-AZIINZ A[UO Woy Painoes SJoquIomM Jo o3e IY} 0} SB UOWEUIIOJUT IBqrINqeL » eee Selpeulg ** oseg nq eeeereeoes aBey esIA euong -s++ “unouyeg enbneyney) "+ YqyOMye A , eo eee AlUd FR ‘+ gqeysuieg **% L94}S90IO AA “K “N ‘osueio ee eee . Wr et rae eevee se eee . . . . LO ss° yopues MA seee uesz[V “+o O1UreIe Ty sce e QOITUOTTL “7° JOSPUTAY eee eer eee eee apsegQ MON ee ee enone souivg purltoquingy ove ee episugo 2. 6,2) SO 8 Od Pa Woy eae d1qas04 ** ssulyoolg HOI, “Oy eee erquinj[o) se eee UvLIeET woes Aqiays e2UUePMEXICT ** wopOYsSoO,D nee @ yIoq[oy ‘*** mdoqinog oo #2 0 projzsey kyunoy ANV dO SdNOud see eee eee SEIU aN ene gee oes aseg ng SSOCOnRHA HHANwOYTH seeees 9[qeysuleg Rema e oKG sSsulyoorg A, eee eysTA CUSn, o.6 6-0 ae oie yopued eS EE SO pera Pie. eieie es 7** JOSPUIA Sh eal ose) Mon . SODAHSCOMS ONKNANAW vies ‘oS eseee oweoeeee ees eee SOccsocso SSoSoSSS . WESSSSSSs QIAN wM © > NX co “ se eee enbneyney) SW ot Ree SEIU g Leo" *' se aera eereoee IBV eerceee esIA euong O72 T eeerece J94JSIOIO AA sg elena, & 6 Ae eee AIU9TT eh cee 8 ‘Ni ‘a3uUeIO . Teens . YO Me AA bpp ees eae. o Pa ‘UIT rr: oeeee oe a] qejsuleg eps > core ee eee 194S90I0 AA Slee OC ox "NI ‘g3ueiOC rage meré . ISB wWMNAAS mri reese arses Mant LOL": ose eee “Wor \uoyy ¢ se eees pueltoquiney + oe eee SIWIeIVT erreer ere eee eee eoe eee SAMONm ROM SAW AO . . ° . . cee ee eee uUesII[V 4 oa) soe + see ee . "UOT UIT, LY eee ee eee ssulyooig 0°6 o- ee eee cee eiquinjo) VAb a oer ereeeeveons uesal[V £3 eee Ba a Sn 8 A ae ara ones NERS Se Bee ee Oe ear eee ee en ee eae ete oreo ere rw eoeoe yJOd v2 ore eer ee wee d1qaB0y 9°S eee ee ee ewe ase J ng Sg oor eww eee erquinjoy) €°s . . Ge ate heer i ey ee hae RBC Hits to CoG 7 RR GR OR ae eee re eee ee o1q9804) TZ eeereceeveoee UPIIETT ee ° . aeeceeesee ee Aqjays O'T oer ene CUURMEYIeT Ie eee coe eee oeeee uevlsey £0 oor ee eee eee Aq]eys PL ee sie Ca ce cole neva eee ne ae SR ae cet cind ee apgae mae eae DP areas ile EUS RSE Seo Saas ase Aad ea ee 2's. a 8 ptojysrey 0°0 eerwnwnereeees propieyy 0°0 eee % % Kyunon ayunoy SI-+T abp fo savax (senuno) £¢) « SHIONUDV GaZINVOYO HO SYAHWAW AYV OHM ATdOAd N Me ‘© | ny Aah Vika Heat see eee eoe unoyed Ob Sees unoyje9 OZ oveeeee WIOMe AA O'6L’ eoeeeve enbneyneyg SY Aud La ae asery Liz eset ereeene yopued MA Cie eeeeeeee TPa ‘VWI Ce TT aseheus see covers a3eD °° a8egq ng teeees serpourg °* BISIA evuong *-* enbneyney) * YVIOMTE AA * o[qejsuieg °** unoyjed * Ja}Sdd10 MA ** jopurs MW "KK 'N ‘o8ueig oe! JOSpUT AL se* gIUeley eoee uesII[V eeee AluayT *** o1qad0r) oeeeceereeeeer eee purrequing een eoceeee seers * trees Og aqseg MON s29* J01U0TT eeece eplsug “se** souleg ‘Pa ‘wy eoeee uelieyy PI ‘wey "** erquimfo) se se* Ssurlyooig rere &QIaYS CUUCMEXYICT * woyOYsod eee Zt9q{[OD ‘** woqinog °c? ploysiey «yunoy . 68 Ff usiun Moe) . . 8 SCOR SAAN ANNAN YO SI ° ™~ ~ S ~ CN ae seypould esIA euong oe eee unoq[ey ses a8eg ng eee ecee a8ery oreee ALUSFT a qeysuleg "* YPIOMTE AA ** J9}SIIIOM oe SOULE "N fasueiO see JOIUOTL * enbneyneyg os eee episug oncrenies grmesey he tet see! srog oene uesz[V orereeer eee ere vt*) JOSPULAA puejisqaung ayIseQ MON "* Brquinjo) ssulyooig “ss Jopurs A aeee dIqasOry *** mWoyOYsoOy e2eee uepieyy OY quay 3191 usy CUUPMEHILT cece Aqieqs 2, 6.6 @ zIOq[OD ** woqinog ‘ce propyieyy ayunoy ONNOA AO “LNAO Wad—AI AIAVL CHAPTER II HOW THE AGENCIES OPERATE As actually encountered in the fifty-three counties studied, character-building work for youth divides sharply into two phases: (1) that under the immediate and intensive supervision of a paid executive as representative of some of the national agencies concerned, and (2) that not under such supervision. The former generally represents work either undertaken at the initiative of the national agency as a result of its promo- tional policy or else work later brought under close adminis- trative direction on a territorial basis. The latter, while bearing the label of some national agency, usually originated locally, is without the intensive supervision of a paid representative of the agency, and is connected with it only through the long-distance relations necessary for recog- nition and regularity. Of the aggregate occupancies of com- munities by the agencies in the fifty-three counties studied, 46 per cent. are in territory not now under intensive supervision by the occupying agency. ‘This territory includes about one- third of all organized groups. This very large fraction of the total work which the national agencies did not “go about” to do at all, but which came to them and goes on without their first-hand cultivation, causes surprise and invites explanation. Of course, all the agencies broadcast their influence through- out the nation, using both systematic and incidental publicity, in the effort to create and influence situations which they expect practically to profit by in the future. Being national in inten- tion, they cultivate America by far-flung and extensive proc- esses, with incidental results which they recognize as only minor services though of great intrinsic value. But, as in all such promotional processes, much seed falls by 38 HOW THE AGENCIES OPERATE 39 the wayside, some of which springs up and grows, Literally stated, some individual or local group takes up with the idea of character-building work for boys and girls and starts an organi- zation in the home community. Next the persons interested either make some long-distance connection with the national agencies; or else they go ahead with their own version of such service. Permeation thus runs ahead of organization. The idea of organized character-building work for youth is much more widely spread than the ability of the agencies to cover the country promotionally and administratively. DIFFERENCES AMONG AGENCIES The differences among agencies in this respect are so ex- treme and striking as to challenge special attention. These differences are not quite exactly indicated by the number of communities now found with or without intensive supervision, since many organizations spontaneously originating have sub- sequently come under paid supervision. The present data, how- ever, exhibit the same contrast in another way, Table V show- ing the number of occupancies of incorporated communities in the fifty-three counties by each agency under intensive and without intensive supervision. TABLE V—TYPE OF SUPERVISION BY AGENCIES IN 225 INCORPORATED PLACES (53 Counties) Number of Agency Units Organized Agency Intensively Non-intensively OU Bat ul pop Ne EID ROP Ree OP Rie ARE 96 2 EPPMRO OUTS coe keels Pak Sele cats 41 59 eerie, okies yl ls et le SLs 58 19 eR CIN TEE ne Siac is 5 Ove oe a eae 0 45 APT IDO CIES sak by xs Ben eats see 0 41 oral Mee ek sa eee Ai oat 195 166 This showing suggests that the Girl Scouts and the Camp Fire Girls have been least indebted to paid supervision for the spread of their rural work, and the Young Men’s Christian 40 HOW SHALL COUNTRY YOUTH BE SERVED? Association most indebted, while the Boy Scouts have been less indebted to supervision than has the Young Women’s Christian Association. The present chapter deals with both phases of extension, as above distinguished. The first section deals with the present territorial organization, which may or may not have resulted from previous permeation by the agencies involved. The second section deals with local communities and studies all the work now found in them, whether territorially organized or not from the standpoint of any given agency. The total con- stitutes a summary of close-up studies of the attempt of the agencies to insert themselves into rural civilization, and its results measured in terms of organization. LOCAL TERRITORIAL ORGANIZATION As previously stated, local territorial organization, either officially promoted or recognized, is found in forty-six of the fifty-three counties investigated. All but one have sporadic local units, but seven counties are without any national agency promoting rural character-building work on a county or com- parable territorial basis. FORMS OF ORGANIZATION The county or some comparable district, sometimes larger and sometimes smaller, is usually the primary unit of super- vision. Other methods of supervision are, however, employed; such as (1) the formal partnership of some city organization with a neighboring rural territorial organization; (2) the in- cidental but continuous extension of city supervisory functions to adjoining rural populations; and (3) special and temporary forms of supervision by state or larger district officials. The distribution of these types of organization appears in Table VI. It is necessary to recognize intensive supervision under all these aspects in order to do justice to the actual rural work of the agencies. In the enumeration, the report has been generous as to what constitutes such supervision in any given case, HOW THE AGENCIES OPERATE 41 TABLE VI—TYPE OF INTENSIVE SUPERVISION BY AGENCIES IN ORGANIZED AREAS Type of Organization Ss 2 on 4 a) dS 3 x Le S:3 ees sss S85 a3 Ss SMH era ee ae Henne opr y sS2 32 sh £ StS B38 gency ropes as S 8:5 = 3 ee BG ec GRICg) Mey eal oy Se Pee eres to etek 31 28 rs 0 0 0 RAOUL ROTTS Oe oy a rsa’ 25 13 0 7 5 0 SPMD Be Ore Pope 17 12 1 1 2 1 MILL SCOUTS | ¢ wince 3:30’ 6 0 0 1 5 0 Federations or Coun- cils of Churches ... 5 0 0 1 2 z Councils of Religious Education or Sun- day School Associa- TIOLIS Gi a ie dee eo 4 3 0 1 0 0 PEOES aie dyin be Ua 88 56 4 11 14 3 FREQUENCY AND DISTRIBUTION OF TYPES OF ORGANIZATION The study deals in special detail with seventy-seven terri- torially organized units for intensive supervision of four national agencies—fifty-four serving boys and men and twenty- three serving girls and women. They are divided among the major agencies as shown in Table VII. TABLE VII—NUMBER PER COUNTY OF THE FOUR AGENCIES HAVING COUNTY ORGANIZATION (45 Counties) Number of Agencies a> > 4S ‘ NX 88 Seat g © 2 ati, aR eae SS = 3 = hey TS) = S, <= = SR ah rine hl bates BEA TR Pet, Uk ER MAN ES 1 22 14 4 3 1 18 4 Ze 2 16 10 12 9 1 22 10 32 3 5 5 5 3 2 10 5 15 4 2 2 2 2 Dhak 4 g Total. .45 31 23 17 6 54 23 77 42 HOW SHALL COUNTRY YOUTH BE SERVED? Five Councils of Churches and four county Sunday School Associations or Councils of Religious Education were also studied, and two counties each had two distinct territorial organizations of the same agency. This accounts for the eighty-eight units classified in the previous table. No terri- torial organization of the Camp Fire Girls in rural territory was encountered in the fifty-three counties. With a single exception, the mark of intensive supervision was the presence of a paid executive or other special super- visor, who in all but two cases gave full time to the work. As between the agencies, while the county unit predominates in all, the following differences were observed: the Young Men’s Christian Association almost always has a county unit, while the Boy Scouts show almost as many cases of distinct or of incidental city expansion as of county units. The Young Women’s Christian Association distributes its types of organi- zation through all of the methods of geographical occupancy. In twenty-two of the counties studied only one national organization was present, while twenty-three had two or more, thus affording illuminating opportunity for the study of rela- tionships between agencies in the same field. ORIGINS OF COUNTY ORGANIZATION Nearly two-thirds of the county or comparable district or- ganizations were said locally to have originated in national promotional activities, and in more than 80 per cent. of these cases such activities appeared to have been virtually the sole originating factor.* This is to say, the communities studied had not been conscious of any general demand in advance and looked upon the agencies as having come in from outside; although there may have been and doubtless often were solici- tations from individuals asking them to enter the field. The next most important factor was the effort to conserve work which had previously grown up spontaneously or with only indirect stimulation. In other words, it was organization stepping in to conserve the results of permeation. More than 1 Table IX. HOW THE AGENCIES OPERATE 43 for any other agency, the territory organized intensively by the Boy Scouts has been that in which independent troops had already developed to a large degree.” The Young Women’s Christian Association, on the other hand, shows distinct traces of the philanthropic motive in the choice of territory. It has often gone where there was con- spicuous need but no previous demand. With the Young Men’s Christian Association territorial organization has been almost entirely a matter of deliberate expansion. These differences are strikingly shown in Table X. In cases where a local invitation to a national agency was the originating influence in county organization it is of great interest to ask who in particular undertook to act in behalf of the county. The cases in evidence are too few for statistical exactness. The initiative, however, appears most frequently to have been undertaken by some one previously active in the work elsewhere. Next in frequency comes the initiative of a Rotary or similar club, one located, for example, in a county seat whose national overhead organization has a recognized department of boys’ work. This has been particularly true in relation to the Boy Scouts. War Work Councils appear as the originating factor in a number of cases, and colleges in others. In a few cases a county was the home of a national or state official of one of the agencies, who in these cases took the first step. In but one case—that of a federation of women’s clubs—did an existing county organization, as such, act to bring another agency into the county. METHODS AND DEGREE OF LOCAL COOPERATION Upon careful investigation, the degree of consultation with local agencies prior to organization was judged adequate in not 2In 1923 the Boy Scouts had a total of 13,499 troops “under council” that is to say, under intensive supervision, and 6,655 troops not under coun- cil. Of the former, however, 677 did not enjoy paid supervision (Thirteenth Annual Report, p. 150). No separate report is made for rural troops. The Councils, however, are primarily located in cities. Probably half or more of the rural troops, therefore, are not under council, which shows that their origin was generally not intensively promoted. 44 HOW SHALL COUNTRY YOUTH BE SERVED? more than half of the cases studied.* The initial local demand was more often slight than pronounced; * and public approval at the time of organization generally not decisive.’ Frequently, even the local leaders of independent units of work of the very agencies themselves did not welcome its more intensive organi- zation under a paid executive, and sometimes their opposition was intense and pronounced. In fourteen cases more or less extensive but apparently ac- curate surveys were made prior to territorial organization. These surveys necessarily showed what was demonstrated in the first chapter; namely, that relatively few ycung people are reached by all the agencies combined. What they often failed to yield was any reasonable criterion of occupancy or direct evidence as to the practical desirability of additional organi- zation. Few territorial organizations received initial financial assist- ance from the outside—beyond the salary and expenses of the temporary organizer. Financially speaking, they had to find local backing before they started in order to start at all. In that sense, in virtually all cases, organization had to depend upon genuine local support. The theoretical question, whether it is better to make a start if one can, even with limited back- ing, expecting to “sell” the community as a whole by means of a going program, or to “sell” it more adequately in advance, does not appear to be settled by the data. Certainly many com- munities do not feel that they were well “sold” in advance, and have come later to resent it. RECENCY OF THE WORK AS A WHOLE Three-fourths of all the agencies in the counties studied were organized not earlier than the last year of the World War.® The median age is between four and five years, a fact which suggests obvious caution to any inclination to judge the work as a finished product. 8 Table X. 4 Table XI, 5 Table XII. ® Table XIII. HOW THE AGENCIES OPERATE 45 ORGANIZATION IN LOCAL COMMUNITIES The study now turns to organization in local communities as found in the fifty-three counties investigated, recalling that 46 per cent. of the time these local communities are outside of the area of intensive territorial supervision of the particular agencies involved. THE OCCUPANCY OF INCORPORATED PLACES Of the 385 incorporated places in the fifty-three counties studied, 225, or 58.4 per cent., have one or more organized units of the five national agencies located in them. The total number of occupancies in the 225 incorporated places in which any agency was present was 361, an average of 1.6 per occupied place. If no place had had more than one agency, only 6 per cent. would have been without any; but so many had more than one that 42 per cent. were actually without any at all. These facts measure the duplication of agencies, which, as will later be shown, exists chiefly in the larger places. TABLE VIII—DEGREE OF OCCUPANCY BY EACH AGENCY OF PLACES HAVING FEWER THAN 10,000 INHABITANTS (53 Counties) Per Cent. of Agency's Units In Incorpo- Number of In Total rated Places Agency Umts Number of Occupied by in Incorpo- Incorporated One or More Agency vated Places Places * Agency * PNA igh aia ee ad 08 25.4 43.5 Pee CLES” wv c sl colt. ves 100 26.0 44.5 COA ee ny as Mae ss hfe ris 20.0 34.2 CrtCOUEs a ela el iw 45 11.7 20.0 Camp Fire Girls ........ 41 10.6 18.2 * The total number of incorporated eae in the 53 counties is 385; the number occupied by one or more agency is 225, The number of local organizations of each agency which make up the 361 aggregate occupancies in 225 incorporated places is shown in the first column of Table VIII. The second column shows what per cent. of the 385 incorporated places 46 HOW SHALL COUNTRY YOUTH BE SERVED? in the fifty-three counties is occupied by each agency, while the third column shows in what per cent. of the 225 occupied places each agency is found. OCCUPANCY OF NON-INCORPORATED PLACES Of the 415 communities occupied 225, or 54.2 per cent., were incorporated, and 190, or 45.8 per cent., non-incorporated. The non-incorporated are especially frequent in the vicinity of cities where they out-number the incorporated places occupied. In other words, such places are primarily suburban rather than rural. Thirty-two per cent. of the non-incorporated places, however, are located in rural counties and appear to be essen- tially open-country communities.’ TOTAL OCCUPANCY OF COMMUNITIES In the grand total of 415 occupied places an aggregate of 619 occupancies by the five national agencies were included, of which 23 per cent. are open-country places. Of these latter, however, more than half are so under the shadow of cities that they must be classified as at least semi-suburban. The distribution of these occupancies between the agencies appears in Table IX. TABLE IX—NUMBER OF INCORPORATED AND NON-INCOR- PORATED PLACES OCCUPIED BY THE AGENCIES (53 Counties) Agency Units in Places Agency Incorporated Non-incorporated Total VM. Ag cle t se ite ie eR 98 69 167 Boy. ‘Scouts 2443 ta eee es 100 79 179 VW CAR a Gee eae eee 77 71 148 Girl. Sdouigu/se) Vee ee eee: 45 19 64 Camp : Fire (sities eet ccc sites 41 20 61 SUMMARY Territory intensively organized by the agencies covers little of the area of the nation and includes but few of its total 7 Table XV. HOW THE AGENCIES OPERATE AT number of young people. In typical areas organized by one or more agencies, however, slightly more than one-half of all communities of any size are occupied by local units of some agency, either as the result of permeation or of deliberate pro- motion. Whether and how far their distribution is equitable is the theme of the next chapter. SUGGESTED QUESTIONS Of more general questions which suggest themselves the most natural is: What of the unoccupied communities? Con- sidering the two methods by which agencies have spread in the rural field, namely, by permeation and by deliberate or- ganization, and their limited development by both combined, one is led to ask: (1) Which method is likely to get farthest and to go fast- est in the future? It is not known how exactly the counties studied are repre- sentative of the total occupied territory of the nation in respect to the origins of the work. What is known is that 90 per cent. of Boy Scout troops in towns of 1,000 popula- tion and less were not “under council” in 1922; that the Young Women’s Christian Association reports as many members of detached Girl Reserve groups as it has in all groups in territory formally organized by the town and country department; and that most of the rural work of the Girl Scouts and the Camp Fire Girls has no intensive super- vision. It is safe to conclude, therefore, that, so far, per- meation has been a more important principle of extension than deliberate organization. So far as communities of less than 2,500 population are concerned (other than suburbs) it is almost certain that the unpromoted work of the agencies has hitherto been more important than all the promoted work. (2) Have the agencies been giving proper attention to methods of permeation coming short of intensive organiza- tion and supervision, and to their approach to local com- munities ? It will take a very long time at best to get around to the organization of all rural communities under national auspices even if there were no losses and no principle of diminishing returns involved. Might not more local communities be 48 HOW SHALL COUNTRY YOUTH BE SERVED? brought to organize voluntarily if the idea of service for boys and girls were still more generally broadcast throughout the nation, and if such service (rather than strict conformity to a given method) were made the test of value? (3) The question arises whether the two methods get somewhat comparable results. What does close organization furnish which permeation by sporadic units does not? Are the greater advantages of the former policy such that the major stress should be laid upon it, even if in consequence many communities are left unoccupied? CHAPTER II, Continued TABLES TABLE X—ORIGINS OF 62 COUNTY * ORGANIZATIONS OF THREE AGENCIES Originating Influence — vss S38 be SBS p OP 8 = Sos Siw Yee Agency oe ae Ho) ere Ne Sie & Ls © = o) w YMCA. QAR Ry sal SS SN Factor present ...... 20 0 0 1 1 Ze Single. factor. .4.<%.. 20 0 0 1 0 Zl Contributing factor . 0 0 0 0 1 i Boy Scouts Factor present ...... 9 10 1 4 0 24 piwie Viactor sss 5's 4 5 1 0 0 10 Contributing factor . 5 5 0 4 0 14 W.C.A. Factor present ...... 8 3 0 4 1 16 single factor ......; 8 Z 0 2 1 13 Contributing factor . 0 1 0 2 0 3 Totals Factor present ...... <7) 13 1 9 2 62 Dine factor. si.) as 32 hi 1 3 1 44 Contributing factor . 5 6 0 6 1 18 * Includes comparable district organizations. TABLE XI—AMOUNT OF CONSULTATION PRECEDING 27 COUNTY * ORGANIZATIONS OF THREE AGENCIES i Number Amount of Consultation Agency of Cases Full Partial RNY Eh UsN chg ain de at OAM vse ont ea 14 6 8 PEO SCOULO abe hci ahl Sty Get ot, 6 2 4 ETE Pe Seta a ORO ONIN flee Bel iar 7 6 1 THEE dts am at Nie 27 14 13 *Includes comparable district organizations. 49 50 HOW SHALL COUNTRY YOUTH BE SERVED? TABLE XII—CHARACTER OF SPECIFIC DEMAND FOR 28 COUNTY * ORGANIZATIONS OF THREE AGENCIES Number Character of Specific. Demand Agency of Cases Slight Strong nde.) BOF. Vine Wer P ree rrr ak AL: 11 7 4 Boy couts fi ash pes ces ieee 8 5 3 2 (4), A ell ee) Oe aan Arye 9 5 4 Total dyiss sae che vos Cee 28 17 11 Includes comparable district organizations. TABLE XIII—DEGREE OF PUBLIC APPROVAL OF 39 COUNTY * ORGANIZATIONS OF THREE AGENCIES Number Degree of Public Approval Agency of Cases Strong Medium W eak PY ATCA ee Susans he eee 20 rs 4 9 BOY OCOUIS Es eer eeie ees 9 6 1 Z EW GE tcata ches 10 1 fd 7 TOR cad uke a ee ee 39 14 7 18 Includes comparable district organizations. TABLE XIV—AGE OF 66 COUNTY * ORGANIZATIONS OF THREE AGENCIES Date of Estab- Number lishment of Oldest Median Agency of Cases Organization Studied Age Nal CoA Aen eee tee 31 1901 7 years Boy Scoutsiiou i. eee eae 21 1913 ae ACW CAA a ae rane 14 1910 hale “Includes comparable district organizations. TABLE XV—NUMBER OF PLACES OCCUPIED BY ANY OF THE AGENCIES IN COUNTIES CLASSIFIED BY CONCENTRA- TION OF POPULATION (53 Counties) Type_of Population Places Occupied Distribution Incorporated Non-tncorporated Total Concentrated counties (urban) .... 108 130 238 Non-concentrated counties (rural). 117 60 177 POtALS twee menete hae aa areata 225 190 415 CHAPTER III EFFECT OF STARTING WITH TOWNS AND CITIES The rural work of the national character-building agencies is not located in the most typically rural areas in proportion to the distribution of population as between these areas and others less distinctively rural. Of the total population of the United States living in places of 10,000 and under, over 72 per cent. lives outside of incor- porated places of even as much as 500 population. In the twenty-nine most distinctively rural counties, of the fifty-three studied, slightly over two-thirds of the population live outside of incorporated places of 500 population and over. Even these counties are thus shown not to be typically rural;* while the other twenty-four either include or adjoin cities or other heavy concentration of population, and thus depart radically from the ordinary rural type. In view of the history and major interests of the national agencies, as already discovered, to start with towns and cities was a perfectly natural and perhaps an inevitable course,’ and might even have proved strategic from the standpoint of the rural work. Centers exist to start from. The basic assump- tion of the work has always been that it shall be manned and supported locally. Larger places naturally have the greater capacity to do these things for themselves, and are more likely to be willing to undertake them. To these natural tendencies, however, is to be added the fact that some of the agencies have never deliberately undertaken to do rural work. Their ideas and methods have permeated rural communities to some extent and they have recognized 1 Table XIX. 2 The city department of the Young Men’s Christian Association includes 77 per cent. of the organization’s present work and large segments of the work of other departments are urban. 52 HOW SHALL COUNTRY YOUTH BE SERVED? sporadic units as locally organized. But they have never set before their eyes a mental picture of the country boy and girl, largely living in farm homes, as a goal of their efforts, to be sought by strong and consistent promotional policies. On the contrary, their policies have fallen in with a natural tendency to stay near the city, and they have made no adequate attempt to correct this tendency in the interest of equal opportunity for country children. Even the organizations which have most clearly visualized rural youth as specific objects of endeavor have been still more conscious of their town cousins. UNEQUAL DIFFUSION OF ORGANIZATION The facts bearing upon this situation, as discovered in the fifty-three counties studied, are as follows: (1) In the occupied counties (which, as seen above, are not typically rural), the more radically rural population is not served proportionately to its numbers. Tested by number of organized communities this statement appears at first not to be true. In the fifty-three counties 57 per cent. of the popu- lation located outside of places of 10,000 and over lives in the open country or in places of 500 population or less. This 57 per cent. of population is served by 53 per cent. of the organi- zations—a relatively slight disadvantage. But, as will be demonstrated in a later paragraph, this seeming equality is largely due to the service of suburban populations living in unincorporated, but by no means rural, places adjacent to cities. In the twenty-nine predominantly rural counties, while nearly two-thirds of the population is radically rural, only a little more than one-third of the organizations are found to be operating ® for this population. (2) The smaller incorporated places are relatively neglected. The proportion of incorporated places which are occupied by the agencies ranges from 30.3 per cent. for places of less than 500 population to 85.2 per cent. for places of 2,500 to 5,000 population—the trend being strongly to the occupancy of the larger places. Only three out of ten communities of less than 8 Tables XV, XVIII and XIX. EFFECT OF STARTING WITH TOWNS AND CITIES 58 500 population are occupied compared with eight out of ten in communities of 2,500 to 10,000. These figures are shown in greater detail in Table XVI. TABLE XVI—SIZE OF INCORPORATED PLACES HAVING FEWER THAN 10,000 INHABITANTS OCCUPIED BY ANY OF THE AGENCIES (53 Counties) Total Number Size of Incorp. of Incorp. Places Occupied Place Places Number Per Cent. RAE Ry meee che ee ye Us eu che 99 30 30.3 DINIE LO CONS Pea year ks cay arn thee ay 107 66 61.7 PMMA E Cia SOON Coin: gone Wk cians we 94 61 64.9 FEO SO out es sla sins eek 54 46 85.2 AMI EGELUANII A, WAL ge danele a bas 31 Ze 71.0 TISTEN bald) a ie Ream a eA 385 225 58.4 Of the agencies, the Young Women’s Christian Association and the Camp Fire Girls show the greatest affinity for places of less than 1,000 population and the Girl Scouts the least.* The smaller places get better attention in rural counties and fare worse in the vicinity of cities.° (3) Work in suburbs is relatively overdone. Twenty-four out of the fifty-three counties studied have concentrated popu- lations, chiefly about cities.° In these counties, about six out of every ten occupied communities are definitely suburban. Where the choice existed, the agencies have conspicuously not chosen to turn their main attention to strictly rural communi- ties. Within strictly metropolitan areas no blame need attach to this decision. The suburban phase of work is fruitful and important, as evidenced by the relatively large proportion of incorporated American communities which belong to this class.‘ Again, those types of agriculture that produce food for im- mediate consumption in cities have created large farming popu- lations living on small acreages in their near vicinities. This suburban farming population offers a genuine though peculiar 4Table XX. 5 Table XXI. 6 Table XXII. * Table XXIII. 54 HOW SHALL COUNTRY YOUTH BE SERVED? field for rural service, which, however, should be kept distinct in thought, plans and statistical accounting from the ordinary rural work of the agencies. It seems particularly unfair to lead supporters primarily to visualize rural community service when so much of the work is under the shadow of cities and with people whose lives are largely modified by such proximity. (4) The least needy places, on the whole, are most fre- quently organized. The larger places, to which the agencies so strongly tend, are already more highly developed and better provided with community resources, though the number and variety of social agencies do not fully keep pace with increase of population.*® Other social agencies ministering to youth are themselves more numerous and adequate in the very communities where the character-building agencies for youth are most frequent and successful. That is to say, the national agencies function chiefly where it is easiest for them and not where they are most needed. To a very considerable extent the town church and the small city church already have specific subsidiary organi- zations to meet the needs of the various age and sex groups to which they especially appeal, as is shown by Table XVII. TABLE XVII—COMPARATIVE FREQUENCY OF SPECIFIED SUBSIDIARY CHURCH ORGANIZATIONS IN VARIOUS TYPES OF RURAL AND SMALL CITY COMMUNITIES Churches in Open Small Organization Country Village Town City % % 0 0 Some Subsidiary Organizations be- sides Sunday School «ices ears t 52 79 93 100 Women’s ‘Organization .).2. 5.2.74. 42 70 87 100 More than one Women’s Organiza- HOM Gs Pe he ee an eee eke ras 17 21 44 90 Mixed-sex Organizations (usually Youne People’s jiasen coe, w ae 25 47 67 66 More than one Mixed-sex Organi- zation Psi Vere Canes Cate an en 5 14 37 0 Men's Organization i) ss. ill ae 2 5* 10 55 Boys’ Oreanizationv wee. 1 6 * 15 * 11 Girls’; Organization a vises. Pele 6 8 * 20 33 * Less than 1 per cent. have more than one. 8 Tables XXIV and XXV. EFFECT OF STARTING WITH TOWNS AND CITIES 55 In suburban territory particularly—other than in the poorest industrial suburbs where the agencies may still find large op- portunity for service—social overorganization is a recognized phenomenon. Considering the available resources of the adja- cent city, the polite suburbs undoubtedly present the greatest wealth of social privilege as well as the largest number of com- petitive appeals to its constructive forces.® (5) Duplication and rivalry of agencies is greater in the larger places and particularly near cities. Of the 225 incor- porated places occupied, one hundred have but one agency each, and places of less than 500 population rarely have more than one. Duplicatory occupancy increases directly as the size of the community, two agencies occurring twice as often as one in places of 2,500 to 5,000 population, and four times as often as one in places of 5,000 to 10,000 population.*® Duplicatory occupancy to the extent of three or four agencies per community is relatively much more frequent in the vicinity of cities. Half of all incorporated places in rural counties have only one agency, while 60 per cent. in counties surrounding cities have more than one.** Twenty-eight per cent. of the duplicatory agencies are poten- tially competitive; that is to say, they involve two or more boys’ or two or more girls’ organizations in the same community. Such a situation, in rural communities, usually means rivalry for members, leadership or financial support, or for all three. The frequency of competition increases with the size of the community and reaches an average of one-third in the vicinity of cities. Both duplication and competition are especially acute in places of 2,500 population and over.” (6) Intensive supervision is not favorable to the wide dif- fusion of local organization. Some of the occupied communi- ties are under intensive supervision, others not. This makes it possible to compare‘the two with a view to discovering the effects of supervision. The greater control of organization implied in intensive supervision has not made for the spread of 2 Douglass, The Suburban Trend (Century Co.), pp. 185 f. and 197-198. 10 Table XXIV. 11 Table XXVI. 12 Tables XXIV and XXVII. 56 HOW SHALL COUNTRY YOUTH BE SERVED? the work to smaller communities. Rather it tends definitely to the occupancy of larger places.** A volunteer may start a Scout troop or other boys’ or girls’ organization where it will not occur to a paid worker to go, and such work can apparently maintain itself where supervision does not easily reach.** The paid executive has to think of convenience of communication ; of adequate local leadership; of developing financial resources. He also thinks of numbers; of making a good showing. Con- sequently, other things being equal, he naturally cultivates the larger places. SUMMARY Perhaps the most effective way to express the actual pro- portions of the work of the town and country departments and the parallel work of the other agencies would be to print the word “town” in very large capitals and the word “country” in very small letters. It would be still more accurate to describe this field as currently occupied by the agencies as “the sub- urban, town and country field.””. There should undoubtedly be suburban and town aspects of character-building work for youth. Perhaps the term “rural’’ should be abandoned as ap- plied to the present work, since the proportion which is rural in any radical sense is relatively small. Moreover, the claim of territorial occupancy is extremely misleading. The typical organized county is not occupied solidly. There are decided gaps in organization of the larger places as well as vast empty stretches among the smaller ones. FURTHER PROBLEMS Carrying forward problems sensed in previous chapters, one must ask again: (1) How far could permeation be made to reach into totally unoccupied communities if it were energetically pro- ear means coming short of intensive resident super- vision! 13 Table XXVIII. 14 Table XXIX. EFFECT OF STARTING WITH TOWNS AND CITIES 57 (2) Can the multitude of very small places ever hope to be reached by organization? Must they not depend permanently upon permeation? (3) Do the present towns and rural cities reach out nor- mally into the open country? Might they not at least produce organization in rural neighborhoods which are part of the larger communities of which they are centers? (4) Has national administration ever fairly faced the problem of the very small and open-country communities? (5) In view of the large number of unoccupied communi- ties in the best developed of counties, and the very unequal diffusion of the work, what shall one feel and say about the duplication and rivalry in organization which exist in other places? CuHaptTer III, Continued TABLES TABLE XVIII—DISTRIBUTION OF THE RURAL AND SMALL CITY POPULATION IN THE 53 COUNTIES COMPARED WITH ITS DISTRIBUTION IN THE UNITED STATES United States 53 Counties Population Population Type of Place No. No. Jo No. No. % Farm population in places (mnder A2,000 od ae eta antes 31,358,640 51.4 735,735 32.4 * Other open country ...... 12,888,342 21.2 558,220 24.6 Incorporated places from TOO) AROSE OU Cea orcas 3,450 2,447,626 4.0 178 122,814 5.4 Ty; WOOT 2,000) kia c ae 3,028 4,711,409 7.7 148 227,086 10.0 £2, DUONTO "D000 Fane net cna 1,320 4,593,953 7.5 85 295,628 13.0 2 5.000816 10,000 Pieters 721 4,997,794 82 47 328,162 14.6 Distal Cites ona wean eames 60,997,764 100.0 2,267,645 100.0 e Logludes. all incorporated places of less than 500 of which there are 6,427 accord- me to ap Walter Thompson, Distribution of Population. iE Walter oe 3 Fourteenth U. S. Census, TABLE XIX—DISTRIBUTION OF THE RURAL AND SMALL CITY POPULATION IN 29 COUNTIES HAVING NON-CON- CENTRATED POPULATIONS COMPARED WITH ITS DIS- TRIBUTION IN THE UNITED STATES United States 29 Counties Population Population Type of Place Number Per Cent. Number Per Cent. Farm population in places tinder (2,500 Ua. peee 31,358,640 51.4 357,973 44.8 * Other open country ..... 12,888,342 Zhe 145,812 18.2 Incorporated places from SOO. 7 OU wen eos 2,447,626 40 51,554 6.4 1,000 £052, 300 ay ee aie 4,711,409 7.7 78,389 9.8 2,500 to 5,000 .......... 4,593,953 7.5 97,696 12.2 5, 000 to 10, O00 pCa cues 4, 997, 594 8.2 68,627 8.6 BOCAS eae ie ae ee 60,997,764 100.0 800,051 100.0 * Includes all incorporated places of less than 500 of which there are 6,427 accord- ing to J. Walter Thompson, Distribution ef Population. 59 TABLES OO0T See = =d0d0r I O'O0T SP O'O0T £2 OO0OT OOL O00T 86 COUESSS = oe TR30.L 86 2 vost LL 8 LAT==6 OST 8st vel cl |B face bho San ee 000°0T 93 000°S C0c OP OFT 9 68c fT Uce Zt Ole 12 v9C 9¢ OCS Var aS eee 000'S ©} 00S‘ E19 SLY eee 68c eT 092 02 06 62 LLC Le CRO eee 00S'Z ©} 000'T f6c 99 f6¢c cl ye Ane 4 86c fe 092 9 v9C 9 Lesa LU eee ee ees 000'T 93 00S Sele ECleg 68 YP vor 8 0959 aes LSC = OC te ae ee eee O05 ?PUET % ON % ‘ON % ON % ON % ON % ‘ON % “ON a901q *F40Iuy 1040], S]4M4) S{n0IS FIM LZ SIn0IS VOW A $3901 q pajos fO azis adty Guivy 1415) fog -Og40IUT 11h snauabpy &qQ paignzaQ saavjq paypsogsoouy (serunod ¢¢) SHOVId ASOHL NI SHYIDNADV AO NOILNAIMLSIG AHL HLIM GHUYVdNOD SLNVLIGVHNI 000';0. NVHL YHMad AO SADVId GHLVUYOdUOONI TIV AO AZIS AM NOILNUIULSIG—XX ATAVL * 60 HOW SHALL COUNTRY YOUTH BE SERVED? TABLE XXI—PROPORTION OF PLACES OF VARYING SIZE OCCUPIED BY ANY OF THE AGENCIES IN COUNTIES CLASSIFIED BY CONCENTRATION OF POPULATION (53 Counties) Population Concentrated Non-Concentrated Size of (Urban) (Rural) Incorp. Place 0 % Under S00 eeu ee ee eae 23.6 38.7 BOO tG TO00 ey tates cae alo ea ots te a 59.5 63.1 1.000 ‘to ZAQ0 oo od Pie a eee wees 60.5 VS es Sy MNES Ate asate os cbyides t5c te lag ela 85.6 84.6 5,000 ito LQh000 ke 1 ieee arse ee eee 66.7 80.0 Total (a ais cae ee eee a 54.3 62.9 TABLE XXII—DISTRIBUTION OF THE POPULATION IN COUN- TIES CLASSIFIED BY CONCENTRATION OF POPULATION (53 Counties) Counties Number Counties Number Concentrated (Urban) ..... 24 Not concentrated (Rural) . 29 Aroutd cities. esate 16 Diftused © g9i0.35 fee 25 Large i aoc aoe tees ak 11 Unified by centers ..... 13 Small ke obi eed cae 5 Not unified by centers . iZ Around ‘mining. sou. ee 2 Defined physiographically. 4 Arotind \water is: < wives. 6 (irrigation) TABLE XXIII—DISTRIBUTION BY SIZE OF THE INCORPO- RATED PLACES IN THE UNITED STATES SUBURBAN TO CITIES OF 100,000 POPULATION AND OVER Total Number Size of of Incorp. Suburban Places Incorp. Places Places Number Per Cent. SOD to 1d, 000 eee ae eaten 3,450 165 5 L000 toc: 2500 ee a ae 3,028 324 11 2,500 ito 5 ODO Fe a or eee 1,320 216 15 5.000 to 10 D000 ates i. 721 152 21 10,000! ta-25:000 ai she eee 459 102 a Zorn) to LO0D00 Sich 25 Seats as 219 66 30 TABLES 61 TABLE XXIV—NUMBER OF INCORPORATED PLACES OF VARYING SIZE HAVING SPECIFIED NUMBER OF AGENCIES (53 Counties) Size of Total Places Agencies per Place Incorp. Place Occupied One Two Three Four MONGREL OUUN fake sae oe 85 29 26 a 0 0 TNA E Ley LOU e ae cd oP kak 63 36 23 4 0 WAY DS Ca GP-2 0) 0 UREN era aa pees 64 24 30 9 1 Be IO oes tis aaa anid 47 11 21 13 Z tO LU. OUU) ne. pw ns ae 2 13 4 2 ROGGE ts ed veo sas 225 100 90 30 5 TABLE XXV—AVERAGE NUMBER OF “OTHER SOCIAL AGEN- CIES” IN SUBURBAN AND NON-SUBURBAN PLACES OF VARYING SIZE (53 Counties) Size of Average Number of Social Agencies Incorp. Place Non-Suburban Suburban RM) witiats eo Oe ale s!b hiGld, wid le atche 7 5 Peary UO atts iene elaly he ae Ve 8 PS RTEY Se OU) tas ate cist in! aka! dah ttn wie 13 13 OSA Cha oe 8 ONS GT el ne a em Ea 25 oa PENALISED acs Bhi. hanes bes of 31 TABLE XXVI—DISTRIBUTION OF PLACES IN COUNTIES WITH CONCENTRATED AND NON-CONCENTRATED POPULA- TIONS HAVING SPECIFIED NUMBER OF AGENCIES Total Agencies per Community Places One Two Three Four Counties Occupied No. % No. % No. % No. % With Concentrated Populations (Urban) 109 43 39.4 44 40.4 19 17.4 SAIN FM | ith Non-Concen- trated Populations Mitral yeu Cl sc ak 116 57 49.1 46 39.7 Leo PAR Be Rta tae ania ee 25 100 445 90 400 30 133 5 22 62 HOW SHALL COUNTRY YOUTH BE SERVED? TABLE XXVII—NUMBER OF INCORPORATED PLACES OF VARYING SIZE HAVING COMPETITIVE AND NON-COM- PETITIVE UNITS OF THE AGENCIES (53 Counties) Number of Agencies per Place Size of Incorp. Place One Boys’ One One and One Non-Competitive Places Boys’ Girls’ Girls’ Total Under, 500 | Gots aee cs set oee ae 13 i) 3 29 Concentrated Counties ....... 3 8 we 13 Non-Concentrated Counties .. 10 5 1 16 SOO tera RO w be eugene kee ae eee 27 9 18 54 Concentrated Counties ....... 10 4 8 22 Non-Concentrated Counties .. 17 5 10 Ky EODO3TO 72,000 mun or oets kepesae te 18 6 20 44 Concentrated Counties ....... 8 4 10 Ze Non-Concentrated Counties .. 10 2 10 22 Oo0Ul 1b -O.UU0 sae tca gee cats 8 3 12 23 Concentrated Counties ....... 4 0 6 10 Non-Concentrated Counties .. 4 3 6 13 5 000 46° 10 000 ae eee ee 3 0 9 12 Concentrated Counties ....... 2 0 3 5 Non-Concentrated Counties .. 1 0 6 7 COIS Are ete eee 69 31 62 162 Concentrated Counties Urban) waeieeees Dept eeeeelt 27 16 29 72 Non-Concentrated Counties CRttral ci; eaeinecere van eee 42 15 33 90 3 s 3 S S 3 : w | VRS oR a ee Competitive Places S S Sx 28 S Bullstece = Am (BG. BO RO eee 500: to OOO eye ee > 2 4 0 0 9 Concentrated Counties ..... 0 0 ge 0 0 2 Non-Concentrated Counties . es 2 0 0 tf 1.000 to2,500 Cae area tern 9 1 6 20 Concentrated Counties ..... 4 0 3 3 1 11 Non-Concentrated Counties . 5 1 3 0 0 9 2,000 to 5.000 Beyer ee 9 0 11 Zo 2 24 Concentrated Counties ..... 8 0 6 1 1 16 Non-Concentrated Counties. 1 0 5 1 1 8 5,000 to 10, O00 Rete a rune ee 4 0 4 0 ye 10 Concentrated Counties ..... 3 0 4 0 1 8 Non-Concentrated Counties. 1 0 0 0 1 2 Totals Ji cc ora weee aedee eat 25 2 25 5 5 63 Concentrated Counties ..... 15 0 15 4 3 5 Fe Non-Concentrated Counties . 10 3 10 1 2 26 TABLES 63 TABLE XXVIII—DISTRIBUTION, BY SIZE OF PLACE, OF AGENCY UNITS UNDER INTENSIVE AND NON-INTEN- SIVE SUPERVISION Size of Supervision Incorp. Place Intensive Non-Intensive AIDE LT OU a Ce as ae a dd ce cd Rete Cha Jil 9.6 USP OO LUO C7 aa BAe EArt ce Peal hs 26.2 25.9 SIMMER UD Nees ila peta eee A Oey 26.2 33.1 ere EOL) Fo is iis Daa cate ce nk Lin ae PA 20.5 Be TON LO OU Pr Loe ie eras a Sos) ee, 15.4 10.9 PLRSEA EME Me age 2 clay he esis clack ots Prtatcrs 100.0 100.0 TABLE XXIX—DISTRIBUTION BY SIZE OF PLACES OF BOY SCOUT UNITS UNDER INTENSIVE AND NON-INTENSIVE SUPERVISION Supervision Size of Intensive Non-Intensive Incorp. Place Number Per Cent. Number Per Cent. TOPCUEOUY hc ce nics Cia dak oh es 0 0.0 6 10.2 PAU WOU td seo ou alae 10 24.4 16 27.1 BRU DU, ene Sse eprint ak 12 29.2 17 28.8 Ree TOO, UU in ns so paid a ee pe fee 9 22.0 12 20.4 BU Ee OOO Ne oaks oats heals sae 10 24.4 8 13.5 CHAPTER IV TAKING ROOT IN THE LOCAL COMMUNITY The report now enters its second phase. Up to this point it has been studying the data primarily from the standpoint of the initiating national agencies. It now turns to consider the same data from the standpoint of the responsive communities. The work has now become local. Whether present through intensive territorial organization or not, the national agencies are presumed to be no more than helpful partners. Responsi- bility now primarily rests with the home folks. The specific subjects of investigation become, therefore, the groups and members which constitute the local units of organi- zation and character-building effort. In the 415 occupied com- munities, as already noted, an aggregate total of 619 occu- pancies by the five national agencies was found. But the agencies generally have more than one organized unit in a com- munity. The total actually discovered was 1,268 groups, an average of over two per community, with 25,455 members. The average size of the organized group ranges from thir- teen members for the Camp Fire Girls to twenty-eight for the Young Women’s Christian Association, the Young Men’s Christian Association and Boy Scouts average being twenty and twenty-two respectively. Unsupervised groups tend to be larger than officially supervised ones. Girls’ groups average smaller than boys’.* Junior Extension Clubs are likely to have about ten members on the average. By what processes did these organizations become rooted in the 415 communities, and what are they like now that they have been naturalized there? _1Tables XXXIII, XXXIV and XXXV. These tables show the distribu- tion of the units and members studied by agency and by geographical region; and should have careful attention. For the ratio of the membership sample to the total membership of the agencies, see p. 32. 64 TAKING ROOT IN THE LOCAL COMMUNITY _ 65 ORIGINS AND DURATION Since organization in so many of the occupied communities was the result of their permeation by the idea of work for boys and girls rather than of direct and deliberate promotion by the agencies, the question of the origins of local units is a separate one from that of the origins of promotional organizations. Local testimony was sought on this point. According to this testimony, almost exactly half of the present local units were started by some private individual, most frequently a minister or educator, who, however, generally acted on his own responsi- bility rather than formally in behalf of his church or school. Forty-three per cent. only of the units were started by paid representatives of the agencies entering the community officially in their promotional work. Formal action of local groups and organizations—such as Women’s Clubs, Rotary or Kiwanis organizations—originated the remaining units. DIFFERENCES AMONG AGENCIES The Young Men’s Christian Association and the Young Women’s Christian Association, which alone of the five agencies have special “rural” departments, were generally organized by paid representatives, while the Girl Scouts and Camp Fire Girls originated almost exclusively with local com- munities Puemectyes, as the ieee Scouts did in about four-fifths of the cases.” LAPSED LOCAL ORGANIZATIONS The practical problem of organization is, however, not so much one of getting started as of keeping alive. For the five agencies studied, there was found one dead organization for every three living ones. The difference among agencies was very great in this respect, the ratio of dead organizations in the territory studied being eight and four-tenths to ten living ones for the Camp Fire Girls, but only one and four-tenths to ten for the Young Women’s Christian Association.* 2 Table XXXVI. 8 Table XXXVII. 66 HOW SHALL COUNTRY YOUTH BE SERVED? The life of the lapsed units was most frequently one or two years. Less than one-twelfth of the total survived five years. Intensive supervision was not found to add to their longevity.* HISTORY OF LOCAL ORGANIZATIONS This bare enumeration of lapsed and living organizations only records the net results of an interesting process of organi- zational ups and downs and ins and outs which has been traced fairly completely in just one hundred cases for the decade 1913-1924. The results are summarized in Table XXX. TABLE XXX—PERMANENCE OF AGENCIES, 1913-1924 (100 Cases) Agencies Boys’ Girls’ Total Communities with one agency for same sex Number having— Continuous, existence 25. bea ena cleaticas eke 2 4 6 Lapse and reorganization after interval ...... 18 ve 20 Permatieat lapse. “yale pan teu earn oe 2 1 , FE OtaN Wo. ve caer pic etre en eee heey ek Le 4 29 Communities with two agencies for same sex Number having— PUCCESSIVE OFSan ization vein tne se oats tena eS 17 20 af Lapse of first followed after interval by BECOME CROC Cee ea Son ve tee te il 15 26 Lapse of first followed immediately by second 6 5 af Overlapping Oreanizavioiney eval cana ek ee ae 23 11 34 First: comet vsurvived tan ciias sande coe esene, 4 8 Second (Gomer: surviveu ci «cab sil eee von 1 1 2 Both 7 auryive i ie ee ere ee a iW 4 6 23 Botlt Jansed Mea es se ce eae 1 0 1 TOtal cee acs eee ao as eae ex roar ae errs 40 31 71 Twenty-nine of these communities had never had more than one agency for a given sex during the period studied. Very few of their organizations, however, had had continuous exist- ence. The prevailing tendency is toward lapses and reorgani- 4 Table XXXVIII. It should be noted that the data on which this table is based are not sufficient in amount to warrant the conclusion that this generalization applies to every one of the agencies. TAKING ROOT IN THE LOCAL COMMUNITY ~ 67 zations again after an interval, though the ratio of permanent lapses is smaller than in communities where competitive agencies were present. Lapse is thus no warrant for assuming the permanent death of organization. Indeed it is so frequent as to suggest some- thing almost normal. Organizations in small communities die down, are revived and die again. Cases appeared in which such alternations were repeated sometimes as often as four times during the decade, even when no rival agency was present to affect the situation. ! Seventy of the one hundred communities studied had two agencies during some part of the decade, and there was a single case of three agencies. These cases yielded an almost exactly equal number of examples of successive and of overlapping organization. In case of successive organization, an interval usually oc- curred between the lapse of the first agency and the organiza- tion of a second. In nearly one-third of the cases, however, such organization followed immediately. The field study re- vealed a considerable number of instances in which rival agencies confessed that they were closely watching the fortunes of local groups of other agencies, ready to pounce upon the community at the first opportunity. With overlapping organizations, both agencies had survived (up to the date of the study) in twenty-three out of thirty-three cases. When one of the rivals succumbed it was usually the second comer. The rather slender data give little encourage- ment to the agency that would try to supplant another which is still in existence. Comparing the twenty cases in which lapse was followed by a revival of the same agency with the thirty-seven in which a different agency came in, one is impelled to wonder why the tendency to change the auspices of character-building work is so much greater than the tendency to continue under old auspices. The above generalization necessarily omits many of the com- plicating facts of the decade of organizational history. Thus, in reporting the number of duplicatory organizations in the 68 HOW SHALL COUNTRY YOUTH BE SERVED? same community which still survive, the table fails to show that more than one-fifth of these have had their own lapses and revivals during the period. But this is no higher a rate of lapse and revival than when there is no duplication. Again, there have been numerous unsuccessful attempts to revive lapsed units which the data do not show. Finally, the accounting is only in terms of communities. The Boy Scouts, for example, may have several troops in the com- munity, but if any troop has survived for the decade its organi- zation is counted as continuous, though many troops may have been lost for good. The impermanence of the separate units is thus much greater than that of the community organization. DURATION AS AFFECTED BY SIZE OF COMMUNITY The average life of the local unit tends to be considerably longer in larger communities than in smaller ones, as is shown by Table XXXI. TABLE XXXI—LENGTH OF LIFE OF 232 LAPSED UNITS OF THE AGENCIES IN PLACES OF VARYING SIZE Length of Life in Years 2-3 4-5 Size of No. of Under 2 Over 5 Place Cases No. No. No. No. Under ® 250° etre eae ae 13 7 v 0 250° to “SO0s a eee 52 25 23 3 1 BOO" to LOU eae eae 65 28 19 12 6 1,000: to 2,500 eae 59 21 25 11 2 2,000 0 210 OOO ieee cee 34 10 16 = 4%: The facts revealed may presumably be explained by the larger supply of boys and girls, the greater amount of available leadership and generally by the more ship-shape conduct of social institutions in the larger places. They tend to emphasize the greater need and handicap of the smaller ones. AGE OF LIVING UNITS Most of the work of the agencies found by the study was of recent origin, 268 out of 579 units reporting on this point being less than two years old.° This means that it is just getting 5 Table XXXIX. TAKING ROOT IN THE LOCAL COMMUNITY _ 69 under way. The normal life span of this new crop of organi- zations is by no means settled. In view, however, of the large proportion of the lapsed ones and their brief existence in the past, the prospect of long life for the living units is not to be taken for granted. Supervision, backing and the other forces of conservation may, in the future, greatly increase longevity, but they have not yet proved that they can do so. CHARACTERISTICS OF ORGANIZED GROUPS What are the 25,455 boys and girls like who were found in groups of twenty on the average under the label and the organ- ized influence of the agencies? AGE TENDENCIES More than two-thirds of the membership of the five agencies, as determined by 9,295 cases reported in Table XXXI, for the counties studied, were between ten and fifteen years of age, and of this group the great majority were between the ages of twelve and fifteen. The two Scout organizations have the largest proportion of young members and the two Christian Associations of older ones. Boys’ organizations have more young members than girls’. TABLE XXXII—DISTRIBUTION BY AGE OF 9,295 MEMBERS THE AGENCIES (22 Counties) Per Cent. Distribution by Years of Age _No. of Total Agency Members 10-13 14-15 16-17 18-20 10-20 NE GY Se Re 1050 ii 2o.4 iin oes0e 30.0 9.0 100.0 Tey OCOULSH Royse hag edule 3,402 440 38.1 15.8 2.1 100.0 PEORATS BOY Sri. v'v'e » Cae TR LAE BY AE LSS Rt RA 46 100.0 BPP eRe he o%\s alps se 8 eine BAO ICI A OO eto 10.4 100.0 PLOTS) 6 i ed Secs ts O59 AO) Weis Zal 15.2 Zh 100.0 Gamo Fire: Girls ij.4 .. da 54% 742 DS av 2s) 29.6 11.7 100.0 MITEL Ee WRAL ABN Gre yaaa 2. wor ateod. we atoton yr 20.0 8.7 100.0 oral Apencies & 7. 25s p75! ss 5 > Ss Ses 0 6.3 100.0 70 HOW SHALL COUNTRY YOUTH BE SERVED? All told, about seventy out of every one hundred members of the combined agencies are under sixteen years of age. Later adolescence is very little served. ENVIRONMENTAL AND CULTURAL RELATIONSHIPS Nearly one-fourth of the entire number of members are from farm homes, the agencies which have definite “rural” and “town and country” departments having relatively more from this source.® This is a significant proportion. It includes, of course, the children of many. suburban farmers; also those who belong to school groups located outside of their home com- munities. On the other hand, it means that three-fourths of those reached by so-called “rural’? work are not from farm homes. The average attendance at the stated meetings of organized groups is nearly three-fourths of the membership—a better record than that of the rural Sunday school.’ Fighty-six per cent. of the combined membership under six- teen years of age is also enrolled in Sunday school, showing that in these years the agencies are largely dealing with the same boys and girls as the church.* Sixty-one per cent. of their members over sixteen are also church members,’ showing that with later adolescence the agencies and the church more largely supplement one another, each securing some adherents where the other fails. Neither church nor agencies are strong with later adoles- cence. They largely fail to hold the young man and woman. DEGREE OF ADVANCEMENT OF MEMBERS Sixty-one per cent. of the Boy Scouts, 73 per cent. of the Girl Scouts *° and 83 per cent. of the Camp Fire Girls were in the lowest rank of the respective organizations (“‘tenderfeet,” 9 Table XLIII. 10 Table XLIV. TAKING ROOT IN THE LOCAL COMMUNITY 71 etc.)..7 The Young Men’s Christian Association and the Young Women’s Christian Association groups are not usually organized by “degrees” of advancement based on definite re- quirements. Forty-one per cent. of the Young Men’s Christian Association members were, however, in Grammar School groups,” None of the agencies except the Young Women’s Christian Association have to do primarily with members who have reached the high-school stage of education.** About one-fourth of the membership of the Young Men’s Christian Association and the Young Women’s Christian Asso- ciation consists of young men or women employed in business or industry. This is due to special stress on the organization of these classes in a limited number of counties, The fact that most of the agencies do not reckon advance- ment by comparable stages makes it important to study them individually in the appended tables.** EFFECTS OF SUPERVISION As shown in the tables, there are relatively more group mem- bers from farm homes *® and more church members among the older group members in supervised than in unsupervised terri- tory; *° but there are fewer younger group members in Sunday school,”’ less steady attendance ** and a slighter degree of aver- age advancement of members, in agencies where this factor can be traced.*® No explanation of these facts occurs. Probably the average organization is so young that supervision has not had time to work out any consistent effects. 11 Table XLV. 12 Table XLVI. 13 Table XLVII. 14 Tables XLIV to XLVII inclusive. 15 Table XL. 16 Table XLII. 17 Table XLII. 18 Table XLI. 19 Table XLIV. 72 HOW SHALL COUNTRY YOUTH BE SERVED? SUMMARY The impression left by this series of data is that the local work of the agencies is not very deep-rooted nor permanent. It is not, on the whole, continuously influential with individuals, nor is it very successful in advancing them through the degrees recognized by the respective agencies. On the other hand, the very unevenness of the results confronts one with an impressive spectacle of continuous local demand and persistence. The starting of the work has not depended primarily on paid repre- sentatives of the agencies nor have they conspicuously served to keep it alive. As it dies down and reappears—often under another label—it exhibits strange versatility and vitality. What seems to be evidenced is a deep instinct to serve youth coupled with uncertainty and inadequacy of means. FURTHER PROBLEMS Before passing judgment on these conclusions attention should be given to a number of questions whose answers lie beyond the data. (1) For example, what degree of continuity in local units should be expected in view of the small amount of available human material for membership in the lesser rural communi- ties? There are simply not enough boys and girls there to furnish a new group instantly when the old one has out- grown a given phase of organization.*® Repeatedly the field investigators were told, “No, we have no Scouts now—but we shall have as soon as we can grow another lot.” (2) May not the very brief average life span of the local organization have partly a psychological explanation? Or- ganized youth-groups often, perhaps normally, originate in or evolve into gangs. Gangs integrate and dissolve according to mental and social processes which may have been intended by nature to be brief. May not the lapse of an organization even in two or three years sometimes mean that it has done its work for one group and must wait for another to appear? (3) May not the “jobbing around” of communities to find another similar agency under which to organize its youth 20 See Table XXX. TAKING ROOT IN THE LOCAL COMMUNITY 73 when a former one has lapsed be merely the evidence of in- adequate psychology? No one wants to attempt to carry on a failure. Lapse is taken to mean failure. Consequently the tendency is to “try something new.” While doubtless this should teach the agencies that no one of them is indispensable, does it not, partially at least, turn the record of apparent impermanency into the story of a somewhat continuous quest for something more satisfactory in behalf of youth, even though the quest often takes impatient and unreasonable forms? (4) Does not the relative failure of the total work to reach older adolescents point the need of special effort in their behalf ? (5) What agency in the community can supply the element of continuity in the character-building process which the na- tional agencies (so far) so conspicuously lack? Must it be left to the chief sponsoring agencies, church and school, or somehow to the community at large? (6) Should not the methods of accounting used by the national agencies reveal and keep before the imagination the phenomena of waxing and waning as the previous data have displayed them? Reports from territorial organizations to their national headquarters now generally deal only with net results. If there is a gain in the total number of organized units and members, questions are not asked about how many losses there were. Church statistics, which are poor enough, do better than this, reporting losses as well as gains. Do not the agencies need to deal more frankly and courageously with themselves and their constituencies as to lapses, discontinuity and brevity of influence, acknowledging the worst but put- ting a more adequate interpretation upon the total facts? CHAPTER IV, Continued TABLES TABLE XXXITI—NUMBER OF ORGANIZED GROUPS OF THE AGENCIES CLASSIFIED BY REGION AND BY TYPE OF SUPERVISION (53 Counties) Region Agency and Type North of Supervision Northeast South Central West Total ON CA Sie kes 142 3 114 106 365 Intensives ia ee 142 1 Lis 106 362 Non-Intensive ....... 0 2 i 0 P| Boy !ScOuts Awiel vec 183 45 81 116 425 Intensive i aaa Sie bee 106 28 38 105 277 Non-Intensive ....... V7 17 43 ll 148 WOW GLA Ce een pees 103 38 62 47 250 AHLENSIVE Lost ees 90 38 44 43 VA) Non-Intensive ....... 13 0 18 4 35 Girl Scouts eu: inten 64 8 30 26 128 Intensive? Me aietior e 0 0 0 10 10 Non-Intensive ....... 64 & 30 16 118 Camp Fire Girls ates ee 27 3 41 29 100 LOLS & ; ten Ronee GirLiee 519 97 328 324 1,268 Intensive incce de eee 338 67 195 264 864 Non-Intensive ....... 181 30 133 60 404 74 TABLES 75 TABLE XXXIV—NUMBER OF MEMBERS OF ORGANIZED GROUPS OF THE AGENCIES CLASSIFIED BY REGION AND BY TYPE OF SUPERVISION (53 Counties) Region Agency and Type North of Supervision Northeast South Central W est Total SOE Oey Re Pg es 3,504 25 1,998 1,508 7,035 BELCDISEVG OK oy 'e elites 3,504 Fi 1,984 1,508 7,003 Non-Intensive ....... 0 18 14 0 32 MSV ACRE. pear’. ans. 5 3 3,484 639 1,695 2,583 8,401 TU STONSEV Gon Wh af tcnt <8 2,130 357 803 2,341 5,631 Non-Intensive ....... 1,354 282 892 242 2/70 BMVE NEN ets oak aie ta tat 2,210 836 2,233 1,553 6,832 A CTISIVE es icccs ae ok 1,972 536 bh we 1,464 5,789 Non-Intensive ....... 238 0 716 8&9 1,043 EL RCOULS | ies so sales 995 101 521 373 1,990 PUTCHSIVES gis irc ar wie < 0 0 0 135 135 Non-Intensive ....... 995 101 521 238 1,855 Camp Fire Girls ....... 314 42 423 418 1,197 “USAC ROCESS Sod eae Vom 10,507 1,643 6,870 6,435 25,455 MtenSIVE ss os ass es sks 7,606 1,200 4,304 5,448 18,558 Non-Intensive ....... 2,901 443 2,566 987 6,897 76 HOW SHALL COUNTRY YOUTH BE SERVED? TABLE XXXV—AVERAGE SIZE OF ORGANIZED GROUPS OF THE AGENCIES CLASSIFIED BY REGION AND BY TYPE OF SUPERVISION (53 Counties) Region Agency and Type North of Supervision Northeast South Central West Total PY VE ete acing arts 25 12 18 15 20 LHhnsiVel bie MGneca ess 25 7 18 15 20 Non-Intensive (i..0... 0 18 14 0 16 DOV eOGOULS B45 eas FAVA 16 21 14 22 THPENSIVBs (oak cee ae. 22 hs 21 22 on Non-Intensive ....... 25 19 21 22 23 YO AS IA Alen eat ee cae 22 ie 36 33 28 Intetisive eee eee 22 22 34 34 27 Non-Intensive ....... 18 0 39 22 30 GirlvSennis auc wossoatet 20 17 19 14 18 LENE Src eee 0 0 0 14 14 Non-Intensive ....... 20 a7. 19 15 20 Camp ‘Fire’ Girls 05544 14 14 12 15 13 SD OTAIS s,s haat hte oe ren 23 19 22 20 21 DTiterisivetnn. Lo oe ks ele 23 19 22 21 22 Non-Intensive ....... 21 18 2l Lf 20 TABLE XXXVI—DISTRIBUTION OF LOCAL AND AGENCY INITIATIVE IN STARTING 495 LOCAL UNITS OF THREE AGENCIES Per Cent. Distribution of Responsibility Local Agency Agency and Type No. of Other Or- of Supervision Cases Individual Group ganization MCAD tec eee 113 8.8 0.0 0.0 91.2 Boy Scouts Revues 177 70.1 0. 9.6 19.8 Intensive 7. ech 4s 115 60.9 0.0 9.5 29.6 Non-Intensive ..... 62 87.1 1.6 97 1.6 YW. CAL ee ener 102 24.5 2.0 49 68.6 Intensive) eee ae. &1 111 Fed 5.0 82.7 Non-Intensive ..... 21 76.2 48 4.8 14.2 Girl Stouts eee 47 80.9 ‘MI 12.8 42 Camp Fire Girls ..... 56 82.1 7.1 5.4 5.4 Ota AG otersaaes 495 49.1 1.6 6.3 43.0 TABLES 77 TABLE XXXVII—RATIO OF LAPSED TO LIVING UNITS OF THE AGENCIES No. of Lapsed Units Agency Living Units Number Per Cent. DES Ay hy ch Tethys so Wales 6s oe A 365 79 22 PPE SOULS irl tere tele oe esti ak OMe 425 170 40 VPA AAT Nr ile Uh Wee eh ha. 250 36 14 eT COUS taetl a tials Gade dere clas Pees 128 Je 25 SRST O TILA Si). oe eek 6 Se 100 76 76 ORAL SS aR o Lad a’ stane bok vee cma 1,268 393 31 TABLE XXXVIII—LENGTH OF LIFE OF 227 LAPSED UNITS OF THE AGENCIES IN INTENSIVELY SUPERVISED AND NON-INTENSIVELY SUPERVISED AREAS Agency and Type of Supervision a Girl Fire A. Boy Scouts Y.W.C.A.ScoutsGirls Total Y.M.C.A Length of Life eS os ES ta jeceimes on) VE) sed (Years) So tenon) Ue ti od Sona eUtae reed pen thy C8) et a Wterale ssi acto ta Ls ye Bh So 2) Oe Cet. panes ee EDR OE Oy Cae TSW OW Vl en ain 2.00) 2h dy Ss ah) eee aN eee Gini en eas Yr Gi ON tS het Own Land EY ee SW Ome teense: Cty 00) 0 Onin Cama memes he Ce ee WALD leh Lae hake tof OCF Le Ot eames SL Lee pe aes Oates Oe eee Sn Cr) 7: 0.\. 51.0 see a a CO Cre Cue Laer: Ose 03). 24) Zine emma ise EA ee ee Pe OM Qo ber Os Ooh Oat ae ee MAO Acie e's ess To eon Giewatte © Or Oe\) Oe Ok eet Lc ee Oar On amdtmn Ordos 00) 00 ih 2a amme RES Li ciocn eteiices Ui OO Ope Ostia te ON, 04.9) 0. eae PRCOD Sah He oie hss OO Oi alah Ont) Oy - Oty Ce ae eralen ey ah OF ADS ibe. 2s -eTT SG Aina e "8 HOW SHALL COUNTRY YOUTH BE SERVED? TABLE XXXIX—DATE OF ESTABLISHMENT OF 579 ORGAN- IZED GROUPS OF THE AGENCIES Date of Agency Estab- Girl Camp Fire lishment Y.M.C.A. Scots Y.W.C.A. Scouts Girls Total Oto ees Skee’ 1 0 0 0 0 1 TO are ie eet, 1 1 1 0 0 3 TOOOT Sy pce ee se 2 0 0 0 0 2 Wasa oceans 1 4 0 0 0 5 TUL Ue eck k« 0 1 0 0 0 1 i LD WA oats PN 0 4 0 0 1 5 1016 Herta Sar 2 4 S 0 0 8 LER A ECE 1 4 0 0 0 5 LULA ee ea ee 1 11 2 1 1 16 OTA Rees eee 3 vi 2 1 2 15 1 A WA) Pee RON ee 1 8 3 1 3 16 LOIB Teele 7 5 7 3 3 25 y LEN A es RE mg 12 17 14 2 10 be O20 TA as ava 12 15 24 13 7 71 LOPE Sette oe ats 8 24 2. 10 14 83 REAR ES We Uh alley tA 12 39 29 27 17 124 1902S ae ae 22 Jé 10 13 23 140 Rr DE Ree ga us 3 0 1 0 4 Ota rae es 86 219 vet | 72 81 579 TABLE XL—PROPORTION OF AGENCY MEMBERS FROM FARM FAMILIES Agency and Type of Supervision Per Cent. 9s OA te. Wa aie a Sarr Sy Ceci A PEA af NK LAE Rae WP SCR SMA OD tal 29.3 Intensive bo 8e. Be Eee Oak Ue ec are Ce aa as en 29.4 Non-[ntensivey ca Gi ree a Pe oe eae oie oe een ites en Sur BGy ScOnts 5. Ge AeA ees sen eee tate atiwe ieee adie satan ee Rane eRe 17.4 Drrteti Saye. es ce See Ne oye eh ee enet oa ele anh ean Ont 18.2 Non-Tatensiyee sol eee tao ea a oP) tier, do a renege ona oa TSF Total Boys'~ Maa es aate ne on ate semiele N ee ee actrees aa cheetah ase eee tae [ntensive Ate os ae sy, eek nna cla a oo Uae XO eae GL en eae 24.8 Non-[ tensive feces wena e biaee ea le a haus es pce oie cei 15.6 BO) Osh, Vamp ms Mh be Gia Ua ORE VEER Sep ol ld ld 29.6 Tntensive aoe a ee es Wis ea Ge tee ee ake ee ee 30.9 Non- Interns tare 5 he sea ee eo beta gai ce Gok eae ee ee eo 25.9 Girl Scouts) 4a we Bee oe Pie pe ok Le gee, ee ee 19.2 (Non-Intensive ) GCamn (Fire Girlki 0a0 oon mss «cee ue peas k aie oe eee Se ee 23.4 Total. Girls) nea ee Ne oh) Ae Lae 255 Intensive oe ieee ilies Getnte nies bate ten ke a 8 i ae eet en 309 Non-Tntensives yo fats cd 0 oe ela wie lente biel ws ey oe at eee cau Total Agencies c5u3 Peale how als ay Cae cee ees 23.4 nesta ks RE Ie, Ry a te neh Chee mel AeA PAE Wk lo og AO diel! 26.0 TABLES 79 TABLE XLI—RATIO OF ATTENDANCE TO ENROLLMENT AT MEETINGS OF LOCAL UNITS OF THE AGENCIES Agency and Type of Supervision Per Cent. PS DUCES OAs ae Oe IE oe ADS AW OU UROL LAA Nidal Po fn Pts A ee 74.5 COT cee kt ee |r Oa RRR Maa EON SE NIRV ot NE YUE Bf Or BI OLR 74.5 OTA TELS OTLEL VOL 5388 vo Wie aie Ga daae Ta ead Batra a de daatd eA ny Ucar 78.6 AEROS ES tears eres CN The ah eS AC ease Se cae eCard Md nude 78.5 C8 eS SUS ATS SAORI OME RI asa haa APC Rg) ROP ag AMOR LEAT ce pt Fey a el au a is SE) EVES TES 8p alt EO Ged IRD MER OL yO OM ea Ma ONL RAI Lig AAs De PLA 79.0 SEVERE RUMEN YS TM tone Schl Js. sat Yooh ches BALH cee AIA Meith Wwe ee are Meee tae 76.5 Ra erter Velie ar si, .kcirur ue! Nuch LU IY i) Bre ray Cragg meh OI tees cation Fhe PTE ETO SIVE) Ofc lu esta telat cae alaae ease MAE LEN nA haCk wu duro Ut 79.0 eR TEEN, HIT OR I0 Bale nO Aa DGGE ORR ABLE aD 20) MR MAB EUUI ORAM ICEL GIS 65.0 ELST eNO te here Mc ohlig hadnt a Patio a Tia 4! Gea ed cI Aen | URCN SS alee Se a 64.9 og SOE CSOT ES UML OE RSE) RR gee: Se SN ral meee ON 65.2 REC EMCSCESTI TS Amey leo) pig a leila cri ake Vhs ANGRY Gd =) EMC MOL CFEN OE Re aA Lula My 80.0 (Non-Intensive) PCA GER DOT RLS 0 ta AL aT On UR aI ee Re RR 85.0 eet diS Wier ret so mig ine Ak | ley ih Bie Miva 69.7 eRe ts ty crs a re eed eas Stee LPs So Aus LAWN oe oe 64.9 BESTEST Verrtey eed! Ie esl RE NUL e Lert’ Lib MULE, 18.4 EMER er OTICLE Em Mr Me LU ELV aaah ine Ge Wa ylace a My g Ghat a's ak ges shatouh taieny 23.3 PERT Lay Emr Tenier ncn kd Soca AG Lith Sin ary gl dl alura ge ig etre A ab enter ame 70.2 Pe IMETIUPTI SE URW oe ce eet ig ieee Wha ulead ae CNN ic ty ieee ee 78.9 TABLE XLII—PROPORTION OF AGENCY MEMBERS UNDER 16 YEARS OF AGE WHO ARE SUNDAY-SCHOOL PUPILS Agency and Type of Supervision Per Cent. MOEN. CM A SST GI RRS LAR REALL) BU is eco LE ea PURO GA Le 80.4 PRETEEN eee ae le ene he ME PRC Bm nme a gary Caine oe ale Nay 80.7 eT OTIST UE, Winders aie eg ate orale een Pate aed ads tao a bk ol Mcecl tea 100.0 eer REIT T Ses atl ies y is eta Baran a MRL Le RM ia TR Ab A gy 85.6 PEL TORTSN VERT Ee Ch ahs oe sia At ee Ce te aye tear LAS ee tN ah 4.0 oO fy PA Cala Wie RAD RR a OGL Te NEN STS LAR LO 87.0 TAD ETO CRMIRT EERIE git Rept aLOY 4, NE Ost EN sO OY RE SOLAS A RRP Gig LA 84.0 EES A Melia UEC Ags 2 eA Pe CoEDG AOE Wen OLE) aU mee Pari WLR 82.2 80 HOW SHALL COUNTRY YOUTH BE SERVED? PA he are a ee, ls ee ee 87.2 THtensives onic b oSs s oboe Cae FA Wee Hb Re as eee cree ae eee 86.6 Wonsliitensives ¢ os coo ee Oo bce rare eo bae a tata a enn ane es 90.7 Gifts Semarts oc ee ae eo EE er 96.8 (Non-Intensive) Camo Fire? Girls’ (249, ose ase entre fe ee poe en eet eee 90.8 Total S5irls’ o.oo Pg Vie eee 90.7 Tritenstye. use Fk alate ee ei ee Peas ree ee Bee 56.6 Non-Intérisive 86 soe Pe eV Ga ae ae eee ere 93.9 Total: Agencies i,).5\.5 si 6 Pests Ma onal Vrs ee ee 86.7 Interisivéd 6) 2b oe i ee PA eee 83.6 Non-Intensive:) i 5.6 si ebele ake ee ae eee ee 90.2 TABLE XLIII—~PROPORTION OF AGENCY MEMBERS 16 YEARS OF AGE AND OVER WHO ARE CHURCH-MEMBERS Agency and Type of Supervision Per Cent. VOM Aas cic cres e On eee eee WOT eka eevee an wae eee 56.7 Lriterstve iol o's dual scene het ole ke ec ae ote ae eee ate 56.1 Non-Intensive! 4 ).2 oya)bt ee ea ere ae 100.0 Boyt Scoutgey is £5 ave holes ade Cetera eee 54.5 Intensive 255. SL AGeu ee cities MERE ne ee ace ee eo ee 43.7 Non-lntensivé fos a ees Oa se at ee eee 64.0 TotalS Boys) weiss Gary soteaes sem vee k cel cy coral ane oe 56.0 Tntéristyey cc ose hee Bt ee roan Ce 53.6 NonslIntensives ch. 04 cn Prem coe kis Cee ce ae re Lee 65.4 YW GA ee ee ee a ein Beene ce eget ot 0 tn 70.0 Intensive 4 uae ick aalatec Wine ian odie eee bal bee ake ae 74.6 Noti-intensivess crocs be ihy Cin Seeks Bebe Leelee 56.0 Girls Scotts Aviso eda ee dick cece alt he ee eee 56.1 (Non-Intensive) Camp: Fire’ Girls © vig idctin vs beet ow cries ceca eee ae 54.7 Total (gir lad ie cee Lia eee i a ie oa nk ekg ee 65.9 Triteu sive ware, sh ocais cebu he che vc cae sc abuele Ae eat Cee aa 74.6 Non-Interisiveroih re re Ue BR oe ee baa Total Agencies sy c4ib sce weed cate Sah k ee ae ee ieee oir 2 rere 61.1 Intensives oy cots eae ule Bae daa bhai eect a ne 62.5 TABLES $1 TABLE XLIV—DISTRIBUTION BY RANK OF 5,189 BOY SCOUTS AND 686 GIRL SCOUTS Rank Agency Tender- 2nd Ist Eagles, and Type feet Class Class etc. Total of Supervision Nol. '% 9. Now So. «NO 9% 4 No. %) No.) % RV RSOOIES 0 dd’ fi > 6's 3,180 61.3 1,406 27.1 577 11.1 260.5 5,189 100.0 Aetengrve oy ies ees 2,029 65.1 F716 25.0. 293) GA 15 0.5 3,215 1000 Non-Intensive ..... 1,157 55.8.0 (628 30,3) 284 T3705 2A E000 TieecOuts iL tikn. ees (O00 Fon. IBI2Z6.44 V2008% 00.0579) 686 400.0 (Non-Intensive) TABLE XLV—DISTRIBUTION BY RANK OF 686 GIRL SCOUTS AND 359 CAMP FIRE GIRLS Girl Scouts Camp Fire Girls Rank Per Cent. Rank Per Cent. emer reet secs s es 703 Woodgatherers: ,....-s5+ 83.5 PNAS ST lhe cs ee conse ce 26.4 Fire Marerst ie hie es 13.4 eR Ne aks. we 0.3 ‘POrch DeArers: chek cca 3.1 8 LOS Ia) ee aN 100.0 Pata bie soe ee anaes 100.0 TABLE XLVI—DISTRIBUTION BY TYPE OF 5,984 MEMBERS OF THE YOUNG MEN’S CHRISTIAN ASSOCIATION Type Number Per Cent. [SPA MIIAT SCIDOL PEDUPS ocd He Kanne oi oie 2,495 41.7 RETO DG tue ss k's d's wiel Pics Eva ere dea 2,119 35.4 MRA SI Sie Since da tery Sis a ate Welned ait 1,082 18.1 Re aT a oes ih hy ye nls nahi els 288 48 oe SAE ee a Ne ONY Mn Tea 5,984 100.0 TABLE XLVII—DISTRIBUTION BY TYPE OF 4,134 MEMBERS OF THE YOUNG WOMEN’S CHRISTIAN ASSOCIATION IN 11 INTENSIVELY SUPERVISED COUNTIES COMPARED WITH THE DISTRIBUTION OF TOTAL MEMBERS IN THE TOWN AND COUNTRY DEPARTMENT Headquar- Field Study Results ters Data Type Number Per Cent. Per Cent. Grade school groups .......s.005 1,144 2/76 21.8 High school Girl Reserves ....... 2,110 51.1 51.6 Business. Sirs’ LTOUPS ......0s0%s 829 20.1 21.4 Industrial girls’ groups .......... 51 12 mye a NSE dos @apeeis Venlo a a 4,134 100.0 100.0 CHAPTER V. HOW COMMUNITIES MAKE THE WORK THEIR OWN Any agency new to a community can, of course, get into it permanently only by securing a local group of supporters and members. Once organized, however, such a group is usually organizationally self-sufficient. It may belong to some national movement, follow its rules and customs and even receive finan- cial aid, but its members are regarded as competent to conduct their own affairs, generally to become legally incorporated and largely to support their enterprise financially. Nationally organized work for youth, on the contrary, pre- sents special problems, because its members are not adminis- tratively nor economically self-sufficient. They are under the control of their elders; and agencies coming in from outside of the community feel that they have to lodge responsibility in adult hands.* In local communities there are alternative solutions of this problem. One way is to create a special adult organization to care for the work for youth, generally organized on a county or territorial basis; the second is to attach the work to some existing organization. ADULT MEMBERSHIPS IN LOCAL COMMUNITIES The above statement ignores differences among the agencies in announced policy and constitutional method, and somewhat simplifies the facts as to formal adult organization. The reason for not carrying the study into more exact discrimination on this point was as follows: 1 There are of course many spontaneous organizations of youth, revealing its genius for and need of group recognition and discipline. These, though sometimes encountered in the field investigation, were, however, outside of the scope of the study, 82 HOW COMMUNITIES MAKE WORK THEIR OWN — 83 Almost nowhere in local communities was there found a body of adult members which was self-conscious and continuously active. Of financial subscribers, who professed interest in the agencies’ work, there were plenty. Frequently they were tech- nically members. But their existence made no discernible prac- tical difference as between the agency which professed to have them and the one which did not. The vital factors in the sit- uation were always (a) the youth group, (b) the small number of voluntary leaders, officers and active workers, (c) the pro- fessional worker or executive, and then either the general supporting public or some particular sponsoring agency. The attitude of the subscribers usually was: “I suppose I belong. I pay.” But of further duties or privileges they knew nothing. To the above statement a few exceptions are to be noted, especially in a county or two where adult activities or “com- munity work” had received some development. There were also independent “Y’s” in several of the small cities studied, with their members and membership privileges; but with these exceptions adult membership presented nothing tangible.? 2 The failure of the study to find more vital significance in adult member- ship has been somewhat challenged by some of the agencies. A formal criticism of the report by Miss Henrietta Roelofs, Executive of the Rural Com- munities Department of the National Board of the Young Women’s Christian Association, February 21, 1925, states the matter as follows: “A slight recog- nition is given to the fact that the Girl Reserves are a part of a larger membership organization, locally and nationally, but the objective study re- vealed so little evidence of the vitality of this membership (except for finance cultivation) that it seemed legitimate to disregard it for the purposes of this study. We agree that in certain county and district Associations, the Association might be described as girls’ club work, but we are inclined to believe that the relation of our adolescent work to the adult work is so vital that to ignore it might lead to erroneous deductions. This relation conditions the program of the youth movement and in particular does it condition the educational process, “Even though these ideas are on paper more than in practice, the fact that we can see a great advance in the practice during the very short period of our life in rural areas gives us hope that the ideas are valid and will grow. For that reason, does not the relation of the Young Women’s Christian Association youth groups to the indigenous institutions and to the community itself take on a different character than the relation of the... to the in- digenous agencies?” The author of the report can only answer that on the whole and up to date he does not think it does, though it may possibly do so in the future. It is true, however, that the Young Women’s Christian Association has the largest proportion of unsponsored local organizations. This doubtless re- flects its effort to develop and depend on its own adult members, 84 HOW SHALL COUNTRY YOUTH BE SERVED? RELATION TO EXISTING COMMUNITY ORGANIZATIONS Even in territory under most intensive supervision, where agencies have built up complete machinery of their own with distinct local adult memberships, they are tied into the existing institutions of the community in many ways. Where, on the other hand, intensive supervision is absent, the local units of the agencies are in the main subsidiary interests and activities of churches, schools and community clubs. This section pre- sents the results of a detailed investigation of their relation- ships with such local organizations. From the standpoint of the investigation the significant thing is not whether a local unit has or has not the formal sponsor- ship of some community agency to the extent that it is chartered or officially recognized in such relationship. The vital question is whether the unit is identified in the minds of the community with a local agency. The community knows that it is an ex- pression of a national organization, and is acquainted with its special activities, its personal leadership and most influential supporters; but does the community at the same time think of the local unit as belonging or appertaining to some one of its own institutions? This criterion has to be adopted rather than that of formal sponsorship, because, while some of the agencies generally seek to have their units formally adopted by local institutions, others do not. The problem of the field investigators in seeking a vital definition of sponsorship is shown in the following illustration. The rural Young Men’s and Young Women’s Christian Asso- ciations are largely related to high-school students. Two very dissimilar situations with respect to the school as an institution may, however, present themselves. The “Hi Y” or Girl Re- serves may be recognized by the administration as one of its own school activities. Room may be made for it in the school building and an hour granted it on the school schedule. Con- tinuous publicity may be given it, and leadership and facilities furnished, and it may publicly receive official backing. Or it HOW COMMUNITIES MAKE WORK THEIR OWN — 85 may merely be tolerated because it is a well-intended effort, because the community expects the school to back constructive movements for young people and because this is a free country anyhow. The community understands such distinctions very well in- deed. In the one case, the school is the sponsor of the local unit, no matter whether the concept of sponsorship is admitted or not. In the other, it is not sponsor, although its relation is still specific and important. Most of the local units of the agencies are identified in the minds of their communities with some established local organi- zation in one or more of three ways: (1) by meeting in its building; (2) by habitually looking to it for leadership; or finally (3) by formal or virtual sponsorship. PLACES OF MEETING Only 6.5 per cent. of all units own or control buildings of their own. These are chiefly “Y” buildings in the larger centers classified by the report as rural, or else inexpensive Scout cabins, Churches and school houses furnish meeting places for virtually two-thirds of the total, and private homes for one-tenth. The Camp Fire Girls show the greatest tend- ency to meet in private homes. Because so many of their local organizations are school groups the two Christian Associations make relatively larger use of school plants, but about 40 per cent. of Young Men’s Christian Association and Boy Scout units meet in churches.* Public or semi-public buildings, other than church and school, provide for somewhat more than one- tenth of the total groups. In a small number of cases units of other organizations meet in Young Men’s Christian Associa- tion or Young Women’s Christian Association buildings. 3 Table XLVIII. The above data for the rural units in territory studied may be compared with the report of housing of all Boy Scout troops in 1921 (Twelfth Annual Boy Scout Report, p. 140). The distribution of places of meeting among those most frequently reported was: Home, 2.3 per cent.; community hall or semi-public building, 6.4 per cent.; public building, 11.6 per cent.; school, 20.5 per cent.; church, 50 per cent. It is interesting that the church is more largely used in the total work of the Boy Scouts than it is in the rural work. 86 HOW SHALL COUNTRY YOUTH BE SERVED? This almost universal dependence of rural work for youth upon indigenous organizations for its housing and facilities emphasizes its characteristic lack of equipment and the strength of its relationship to the community; but as a result of this dependence obvious problems frequently arise out of the de- structiveness of youth and the inappropriateness of the avail- able buildings for the kind of activities involved. LEADERS According to local testimony, 38 per cent. of the local leaders are not specifically identified with any particular organization in their respective communities, The rest are popularly under- stood to hold their positions as representatives of some foster- ing organization. Thus a Scout troop may meet in a church but not actually or ostensibly draw its scoutmaster from the church. Generally, however, leadership is traceable to some recognized source of major responsibility and interest. About one-fourth of all leaders are locally understood to be from church sources and one-third from school sources. Naturally the agencies which try to develop adult membership organiza- tions of their own are less inclined to take a leader popularly associated with some already existing organization. In smaller places the Boy Scouts now strongly tend to develop “community troops” which try to emphasize their independence from the limitations of existing agencies.* SPONSORSHIP Only 32 per cent. of all local units are not under any locally recognized sponsorship by other local organizations, either formally or in popular understanding. Church sponsorship is more frequent than acknowledged church leadership, but less frequent than the use of the church as a meeting place. About one-third of all local units are known as “church” groups. The proportion of these was found rapidly increasing with the Young Men’s Christian Association. Acknowledged school 4Table XLIX. HOW COMMUNITIES MAKE WORK THEIR OWN 87 sponsorship is 17 per cent. of the total, being much less fre- quent than school leadership or the use of the schoolhouse as a meeting place. This is easily explained as the result of the hesitancy of the school, as a public institution, to commit itself formally to any non-traditional educational activity. Commercial clubs, men’s service clubs (Rotary, Kiwanis, etc.) and lodges appear as minor sponsoring agencies, but much less frequently as furnishing personal leadership or as places of meeting. Lodges, which are very frequent in rural communities, often have their own junior degrees or departments and are thus not given to much patronage of the agencies under discussion. Women’s clubs do not appear to have functioned as sponsors of girls’ work as frequently as might have been expected.’ Some of them substitute their own forms of junior organi- zation. By these several means of attachment to adult local organiza- tions, boys’ and girls’ organizations constituting units of national agencies have attempted to acquire, and have been brought into, community standing. Most of them, as has been seen, originated from influences already existent within the communities. These are some of the ways in which they have actually naturalized themselves and become part of the com- munity habit and tradition. PROPERTY OF COUNTY ORGANIZATIONS Somewhat similar phenomena reflect the naturalization of county organizations of the character-building agencies in their headquarters communities. Equipment for rural work on a county or district basis is characteristically simple for all the agencies. It consists typically of an office of one or two rooms, the very few exceptions being occasional Young Men’s Chris- tian Association local buildings or Young Women’s Christian Association cafeterias, rest rooms and girls’ homes.° Cooperation, amounting to strong approval and quasi-spon- 5 Table LII. 6 Table L. 88 HOW SHALL COUNTRY YOUTH BE SERVED? sorship or formal support, is evidenced in frequent provision of offices on semi-philanthropic terms, either by public or by other social agencies, the latter frequently being a town or city branch of the same national organization to which the unit assisted belongs. Camping is the single function generally provided with some equipment. Camp property is quite generally controlled by the agencies in their own names, but most often is leased or shared with other counties or districts rather than owned or operated separately.’ With the exception of those for camping, the facilities used are almost always either those of sponsoring organizations, or public facilities, such as school gymnasiums or parks and play- grounds. SUMMARY In order to give substantial local expression to organized work for youth, its control is uniformly placed in adult hands. Though actively functioning local memberships were so rarely found as to be negligible, in nearly one-third of the local units special groups of leaders and backers had developed in local communities without recognized attachment to any existing organization. In more than two-thirds of the cases, however, some indigenous organization actually fosters and is regarded as primarily responsible for the youth-group. This relationship includes both formal sponsorship as officially practiced by some agencies and virtual adoption which is the frequent practice of others. Of the fostering and sponsoring agencies the church and school are chief. Through such relationships communities habitually make work bearing national labels their own. DIFFICULTIES AND PROBLEMS (1) How can sponsorship avoid sectarianism and competi- tion? It is an obvious advantage to get some strongly in- digenous expression of community life to become responsibly related to character-building work with boys and girls. But this relationship has certain weaknesses as well as obvious strength. It is notorious that many of the organizations of 7 Table LI. HOW COMMUNITIES MAKE WORK THEIR OWN _ 89 small communities are bitterly competitive. If a sponsoring agency appeals to only part of the community (as in the case of a sectarian church or rival lodge), being under its auspices may exclude some of the boys or girls whom the national agency most desires to reach. The agencies have often been made aware that their local partners are using them divisively—not in the interest of the boys and girls of the community but merely to get a local advantage for one institution over against another. For this reason all have a proper aversion for narrow sponsorship, especially in small communities. Some do not officially recog- nize sponsorship at all, and all feel the burden of the problem of how to get into the local community without being part of its petty rivalries. (2) Is the difficulty solved by the organization of special constituencies? Some of the agencies argue stoutly that it is part of their service to such divided communities to or- ganize adult units bearing their own label, but with a com- munity-wide point of view, which will conduct the work on broad and non-sectarian lines. Of course, this is exactly what many a denominational church argues. The study simply did not find communities—except occasional small ones—accepting this theory. The typical reaction was to regard the new national organization as just another rival interest. While all forms of control of the work from out- side the community were now and again resented, the effort of a national agency to promote a functioning adult mem- bership was most fundamentally objected to.® (3) Even if the last statement is true, may not a national agency need to create a formal and highly organized special constituency in order to insure the quality of its results? A church, for example, that holds that it possesses the only truth whereby men may be saved, generally feels justified in pressing in wherever it can, no matter what the consequence to communities. Some of the agencies take very seriously the subtler differences and alleged superiorities discussed in the Preface; and while none would admit to holding the theory just illustrated, some are keenly convinced of the very great importance of their particular vision of life in behalf of youth. One of the deepest issues encountered by the study is how to adjust such tendencies to the existing facts and ideals of indigenous community development. How rural communities and national agencies can agree to work to- gether is still largely an unsolved problem. 8 See Chapter IX, p. 130. CHAPTER V, Continued TABLES 0°00 0001 0001 0°00T O°00r 0°00T 0°00T 0'00T 0'00T 0001 1010, 00 0'0 00 3 (, sulpyng 00 UMO,, 99S ) lig Cie f ec OT Gs (, Sulpying cP C9 oT ee 00 00 00 07 “ZS 00 6T ick 0°0 0'0 00 os 00 Fila 08 00 TSt 00 A OWA cé 8?P £9 8ZL LY Pe §zZ SZ cv ES A 9°¢ 9°¢ 00 ST oy EO EE END fs =§ SF ESS ae $ Fs F458 be 8 8 = == =, g. mS —~ ~ iw) Quy fon) = 8 © l'v oe N se tnd thy Bilpbe# alse = Ua Be O09 8) Swat Sta tr Bn So) Bupying Iyqnd 40 [JOE] Umoy 682 86 8:02 0'0T 9°6 £6 I 8& [lp TOP VIP yr4ny 7 buyaapy fo amg fq “uoungijsiq ‘4uay 49g SHIONADV AHL AO SLINN TVDOT £09 AO DNILAAN AO SAIVTd—-INATX ATEVL 601 ™ o, No) NAN © SS SONS i CO Ww) <4 ISNO FT Ww ayvatdg N = 2) Q Pe ia) “” S i) “b eoseereevneee TEIO.L "'* Syln, ait dues (@AISUDJUT-UON ) reeeess* sinoag PID °** QATSUD}JUT-UO KT protests OMSESIDT VOMNA JAISUIJUT-UON JAISUD}JUT > & 6 8.0 eee $j]NOIS L0Go fon] (dATSUd}UT ) beeen ee tee Tepper g uorsrdsagns {0 adi, pun fouabp TABLES 91 TABLE XLIX—SOURCES OF LEADERSHIP OF 382 LOCAL UNITS OF THE AGENCIES Per Cent. Distribution by Source of Leadership Agency and Type of Supervision bf, ean ay Sea Peer (Intensive) Boy Scouts Intensive Non-Intensive Y.W.C.A. Intensive Non-Intensive Girl Scouts ; (Non-Intensive ) eeoerevees ee eee eevee eee eee ds eoreesve ee eens Camp Fire Girls Total ever eere ey ees eee e seve 2 Baa) VS eh Bel ce Ste ae y Puke era ee eC RE Gt yl heen (Se pawn Ol aa hdd) bohen OO 136 346 118 493 29 72 208 i111 667 14 CL SOD IDR eT gS BB. 4nde S00) 34.4 411 77 78 493 390 13 TEV An) SES OO OD 42 262 381 357 00 42 143 405 452 00 382 236 348 385 13 w Outside “N Community Other ossoreso © S oO Ss50 ASN | = S 0.2 TABLE L—TENURE OF ADMINISTRATIVE HEADQUARTERS OF 62 COUNTY * ORGANIZATIONS OF THREE AGENCIES Agency Boy Y.M.C.A. Y.W.C.A. Scouts Tenure Number of organizations reporting ... 28 14 Headquarters Rented commercially.) feo ede 11 1 Shared with unrelated social agency 5 1 Shared with related social agency .. 7 6 PravGruwiy Pulser fou cele te cl 1 4 PAVE TIOTIGI EL wig Gc oie led eT UY oie 4 Vs * Includes comparable district organizations. TABLE LI—TENURE OF CAMP PROPERTY OF 60 COUNTY* ORGANIZATIONS OF THREE AGENCIES Agency Boy Y.M.C.A. YW.C.A. Scouts Variety of Tenure Number of organizations reporting Camp property Owned Tenure unknown No camp property eoocetereee eee ev eeee oeee ere eee eer anere o2et Per eeeee ese ee eeeee ese eae 28 12 Rte warn 20 COD So RSD QE © © Includes comparable district organizations. 20 15 i 6 i 1 5 Total 62 Total 1010] HOW SHALL COUNTRY YOUTH BE SERVED? 92 FO" #90 OS: S06 = SUr 8S SB rae es OFA | VCE = Pitisoc SOP oe aa ene eet one 00 00 eae 0-0 Uo 0D PETS 2008 = POE 9 ec ee ee ee ee (SAISUD}UT-UON ) 00 20 200-00 0Z 00 Vee" Fe EPemeA VY 0G ia pat mace: beran 00; =09-—-00 Ul ee eg nom 0 Oe UD oie Clee GUT Obs age a on OE ieee) (meets 69% 00 00s eh CU OTST eee ea Oe 002= 00->—-D0 Sy eck Ole Lah oe Le Li ees VOMA ge ae ae oe 0 nS PE a Poe oe ee 1 SO rege eh US I ate WES SU Sia teres eae ree 0 taney & eae) es A eeet 2 een a ge dAISUDUT WO e20 Vee O Eos ba 0 eG oes! SZ Levee Uli eee ; (eae ae Si bcere ieee OD= =O - 0 ses 9 0°0 LOG Seder b Been = Ve ee ae a mee Bone hay mac Sas iS a ON OOS Y 2) ~~ uowswsagns fo = Se & a. = LSS SLE > = 5 $= agh yt pup housbhp g S: Q = V3 eS.8.5- 73 Ss S = SS SRE areas | see En ee. = Se 2 eee oe a 3 ‘ SuouvzuDb1cQn Bursosuogs fo uoynqgujssiq "way dag SHIINADV AHL 40 SLINNA IVIOT S8r SNOILVZINVDYO DNIMOSNOdS—IIT ATAVL CHAPTER VI LOCAL LEADERS OF BOYS’ AND GIRLS’ WORK As a result of an intensive rural survey of Worcester County, Mass. (one of the units of this study), the field in- vestigator, Rev. C. O. Gill, recorded “a general agreement that the lack of efficient [local] leadership is the one and only serious difficulty’ of organized work for boys and girls, This verdict is abundantly confirmed by testimony from all parts of the country. Leadership is everywhere emphasized as the key to the situation. Both the beginnings of the local work and its subsequent on-going involve a constant process of action and reaction be- tween individuals and organizations. Half the existing units were originated by individuals. Two-thirds of them are now sponsored by local organizations. This manifestly implies a frequent unloading of responsibility from the former to the latter. To be the initiator of movements is a natural role of the individual. It is true that one who “starts something for boys [or for girls]’’ sometimes acts in a supposed representa- tive capacity. On the other hand, even when one has suc- ceeded in securing a sponsoring organization, it is frequently little more than camouflage for a one-man interest. What sponsorship generally means is responsibility for finding a leader on whom the real burden may be placed, and who will stand for it. The total impression of field observations is that organizational responsibility is somewhat lightly held. The tenacity and propulsive energy of a single man or of a small group—frequently operating in spite of organizational inertia —are the real secrets of the existence and continuance of most of the work. This simply reflects the nature of social processes in small communities and perhaps elsewhere, peculiarly when 93 94 HOW SHALL COUNTRY YOUTH BE SERVED? the local work is the result of the permeation of communities by ideas, and when there is no close territorial organization of any national agency with intensive supervision. In either case, it touches the very heart of the national effort to help rural boys and girls to ask what sort of people are avail- able, and who actually do undertake voluntary leadership in this work, LEADERSHIP AS ORGANIZED BY THE AGENCIES On the background of such-inherent situations, national agencies come in with schemes of organization. All agree in the sound theory that the sanction of their work in communi- ties is, that it is in the hands of local volunteers and is essen- tially the expression of their purpose and sense of responsi- bility. All recognize three types of organization of volunteers: (1) the territorial executive body—county or other areal cen- tral committee—to which the employed executive is primarily responsible and which centralizes authority within the area; (2) local committees responsible for the work in the several communities or for a single unit in a community (e.g., Scout Troop Committee) ; (3) local group leaders actually in charge of organized groups of boys and girls. To these some of the agencies in some areas, as has been noted, add a fourth group; that of local adult members. Except, however, as already in- cluded in the three previous classes, these members, except in a very small number of cases, have neither specific duties nor privileges and are essentially nothing more than enrolled finan- cial supporters. The investigation therefore limits itself to the first three classes, LOCAL COMMITTEES These are groups held officially responsible for the work in the several communities. They have an average of five mem- bers each. One-third meet irregularly or never. About one- sixth meet monthly (ten or twelve times a year) ; the rest less LOCAL LEADERS OF BOYS’ AND GIRLS’ WORK 95 frequently, most often holding quarterly meetings.* Field study impresses one primarily with the very nominal character of the functions of these committees. A typical report reads: “Local committees in this county are very unstable and meet most irregularly.” The facts would seem to be that individual assumption of responsibility on the one hand (frequently under the persuasion of county executives), and sponsorship by agen- cies on the other, are so widespread that the local committee, especially in smaller communities, seems a fifth wheel. Prac- tical relationships are too informal to demand such a com- mittee. This is not to forget that in exceptional cases group responsibility of a very keen and genuine sort is thus expressed. Nevertheless, the investigation cannot avoid the conclusion that —except as it reflects organizational sponsorship—the local committee is not an effective device. VOLUNTEER GROUP LEADERS The man behind the machine and the real hero and burden- bearer of the local situation in organized work for boys and girls is the group leader. Not infrequently he is himself the initiator of the work. The following paragraphs summarize the characteristics of such group leaders as statistically discovered.” AGE OF VOLUNTEER WORKERS The typical unpaid leader of the local boys’ and girls’ or- ganizations is relatively young, 75 per cent. of the total classi- fying being below forty years of age. But there are nearly as many leaders of over sixty as there are of those under 1 Table LIV. 2A total of 488 cases of volunteer workers was studied from these view- points, somewhat less than this total reporting on some of the points con- sidered. This number constitutes a large sample of those directly in charge of organized groups and activities and comprehended under various terms, as ‘leaders,’ ‘“‘scoutmasters,’ “captains,” “advisors,” etc. Both principals and assistants are included within these classes, but members of local committees or county boards of direction who are not directly in charge of community or group work are excluded. 96 HOW SHALL COUNTRY YOUTH BE SERVED? twenty. Women leaders average younger than men leaders. The Boy Scouts have the largest proportion of mature leaders. These distinctions are shown in greater detail in Table LILI. TABLE LIII—DISTRIBUTION BY AGE OF 488 UNPAID WORKERS OF THE AGENCIES Per Cent. Distribution by Years of Age > S SS on © See cena ree Ons Peedi br Y EW. foo Ene eat ee Da Veh p eh ge EIN Whitin al dacs) So Agency 9 Scy Pol Sy al i BR) bea Sele es ee Y.M.CA. .. 125.72 19.2. 20.8518:4.11.2)5.6 7:2 40-08540. 16.1005 Boy Scouts .-211' 0.5 11.9 185-213 175: 104. 9:3$)38235 3000 ViwW.C As 66°°78. 1.30 29:5 282) 140 47 7.7 895267007 0 0.2 ee Girl Scouts. 39 2.6 33.3 15.3 282 128 2.6 2.6 0.0 2.6 0.0 0.0 100.0 Camp Fire Girls 35 2.9 42.9 11.4 17.1 11.4 86 0.0 5.7 0.0 0.0 0.0. 100.0 Total 488 2.7° 20:5 19,9: 19.7 13.5, $8.0°736'°3.5 1.8240 4eree More than one-half of all leaders studied were at least college graduates, and including college undergraduates and normal school graduates nearly two-thirds have had some higher edu- cation. There are more boys’ leaders with only slight educa- tion than there are girls’ leaders.*® This very exceptional showing, educationally speaking, is largely owing to the fact that nearly half of all volunteer leaders are drawn from the professional classes.* Educators and ministers lead, but educators furnish as many volunteers as all other professions combined. Girls’ groups find many leaders in home-making wives and mothers. Only 5.8 per cent. of all leaders of boys are farmers.® TIME GIVEN TO VOLUNTEER SERVICE Over 55 per cent. of all leaders reporting spend from five to fourteen hours a month in their voluntary tasks. Five to nine hours is most frequent with leaders of the two Christian 8 Table LV. 4 Table LVI. 5 Table LVII. LOCAL LEADERS OF BOYS’ AND GIRLS’ WORK 97 Associations, and ten to fourteen hours with the other three agencies.° One-third of the leaders reporting had been in service less than one year, and about one-fifth more had served less than two years, while only 14 per cent. had served as long as five years.” Such brief tenure is partly explainable by the notori- ously short residence of ministers and teachers in a community ; but also it doubtless correlates with the extreme recency of most of the present work. CENTRAL TERRITORIAL COMMITTEES Central territorial committees have an average membership of sixteen, sometimes running as high as thirty. Often they are selected on the basis of one representative from each major community in the county or comparable area. There is noticeable contrast between central committeemen and group leaders, in that the former are older and socially more influential. This is strikingly illustrated in the occupa- tional contrast between the two groups. While the professional vocations furnish nearly half the group leaders, they furnish but one-fourth of the central committeemen, who are drawn rather from the ranks of executives or of men occupying in- dependent positions in industry and business. Such men let preachers and school men do the work, while they lend the dig- nity, raise the money, and keep the power. There are, however, more farmers among them than among group leaders.* The central committees of organizations for girls are drawn from the wives of the type of men just described, though naturally with a considerable proportion of independent professional women. In counties adjoining cities, central committees in charge of rural work are preponderantly commuters whose business in- terests are urban. ‘The characteristic place for their meetings is some city skyscraper. They stand for the goodwill, and for the sense of responsibility, that undertake to project into the 6 Table LVIII. 7 Table LIX, 8 Table LX, 98 HOW SHALL COUNTRY YOUTH BE SERVED? country what the city thinks good for it; and they are not always particularly representative of indigenous tendencies. Sometimes they definitely register a philanthropic attitude of one social group to another. Somewhat similar trends express themselves in rural coun- ties definitely centralized about small cities or well-developed county seats. All the above facts are relatively familiar and simply show the character of the resources of small communities in natural leadership and available volunteer work. SUMMARY Calculating roughly upon the basis of the sample territory, the five agencies must have mobilized a force of some 16,000 vol- unteer group leaders of boys and girls backed by perhaps 33,000 local committeemen here and there in rural America. ‘This is no mean achievement. The members of this volunteer force are typically drawn from the best material of such communi- ties. While few exhibit conspicuous talent in their work, they are select men and women by age, education and occupation. But they give only a little time to the work and that for a little while. The lack of a permanent and deep-rooted supply of local leaders is the most serious and conspicuous of the limiting factors from which the work surfers. SOME ULTIMATE QUESTIONS (1) Is this showing a sample not only of what the agencies suffer but of what rural civilization suffers? Is there any solution to the problem of rural social leadership? Just as the supply of boys and girls is short in the smaller rural com- munities, so is that of available talent for such interests. The professional leaders of the most indigenous agencies are largely nonresident—as witness the rural ministry—or pitiably transient, as is the school-teacher. (2) If rural communities cannot supply resident leader- ship for their better-established and presumably more im- portant interests, can they hope to do so for group organi- zations of youth? LOCAL LEADERS OF BOYS’ AND GIRLS’ WORK = 99 (3) What are the chances of giving technical training to such volunteers as there are? ‘The training processes which the agencies have devised to meet the case were often elabo- rate and admirable; but the infancy of most of the local organizations studied made statistics on the subject impos- sible; while the brief period of service of most of the vol- unteers had made it generally impossible to use the training processes with any thoroughness. One comes away from actual contact with volunteers with the highest appreciation of their purpose and goodwill, but with great uncertainty as to whether the agencies are going to be able to give ade- quate training to those who are not already professionally educated. Some of the older county organizations show strik- ing cases of the development of personal character and ca- pacity for leadership on the part of non-professional volun- teers through a series of years; but most of these successes were found in populous suburban counties where the smaller communities have been enriched by the overflow of culture. Unquestionably any successful organization that lasts long enough can get some such results. So far, however, the good examples of the training of non-professional volunteers are relatively few. (4) Is it not evident that there should be great economy in the use of local leaders, not only as among the agencies, but as between the older and the newer organizations? Can the small community hope, for example, to man the Sunday school and the boy- and girl-groups with separate leader- ship? Can leadership afford to waste itself on oversmall competitive groups? Must not ability to work with boys and girls be made available for both boys and girls when it is so scarce in the smaller places? Is the sectarian use of leader- ship just or generous? CuHapter VI, Continued TABLES TABLE LIV—MEMBERSHIP AND MEETINGS PER YEAR OF LOCAL COMMITTEES OF THE AGENCIES Agency and Type of Supervision . Cam Fire Boy Girl Scouts Y.W.C.A.Scouts Girls Total Y.M.C.A. o oy zy oI 4 4 He cee vo cents ley pg ee ey) Pepeegh eyes ney, we No.of Committees 52 0 79 GFt eco vice lA Zi isa 94 No. Reporting Membership ... 34 0 74 LOS GAG NS ne Gok inate 89 Membership ..... 133. O37 yee, 4a econ a/ wee be 781 438 No. Meetings per Year Los one 3 0) 2 Q 6 3 0 0 1 0 6 4 ny Gaeta He Ge Zi 7 AMO ane 0 1 0 9 in 6 SCARS B 3 0 1 0 0 0 0 0 4 0 Ate Wa cee 6 0 5 2 0 0 0 0 LA 2 Saver ore te 1 0 5 0 1 0 1 0 5 1 Gian Eee Se 1 0 1 4 0 1 0 0 2 5 Th OR ET, Oil 0 Ona 0 0 0 0 0 0 SY mite tiller tl aaah 0 0 0 1 0 0 0 0 0 1 Oe atk hear Uae 0 0 1 0 0 1 1 0 1 2 Leese eae 6 0 2 3 5 Z 1 0 13 6 Le SRR Omne0 0 0 0 0 0 0 0 0 ALIS Bip lod pry: 0 0 5 1 8 1 ~ 1 13 8 Nonetuhineae 2 0 9 re 0 1 1 0 11 9 Frrégular’. ee. 10 0 11 22 1 fs Pd 1 22 27 7A ECS SMP oo: 0 0 1 OOO 0 0 0 1 0 fd: Ee a kee OMe 1 1} 0 1 1 0 1 3 Not reported .. 21 0 26 15 8 3 3 0 hh 21 100 TABLES 101 TABLE LV—DISTRIBUTION BY DEGREE OF EDUCATION OF 476 UNPAID WORKERS OF THE AGENCIES Degree of Education Sy Shs aso os at 9 %S s os a & A S = & S BS 72 = & = & 5 = SiR cuore a wnt 48S con cd Tig Sem se waa ey Ty SUL ie gee ld Oy ey iS Ny ry id Bos Agency %o % Jo %o Like Ae ay alee dehy Le % eV AS FN ia es 142. 92, 16,9 0.7 OOF USS.Olr rt aay aie Lee Boy scouts: . oss. 176 S10 Sie 29.5 3.4 Daeeoo MOA hE OO 0 eee ere. USA 14 27.0 2.091300 o0.7et Alar, de PSI OCOULSINs.«.. «'s D/A 24G wi LUl LD 2a.an oe eens LOL amp tiresGirls., 84/702. 021.3 314,9"> 923-4 3612) 0.0 ned 100.0 ota eae’ ss A476) 7G 2h! O50 01d 45.8 Oyen ao OUO TABLE LVI—DISTRIBUTION BY PROFESSIONAL OCCUPATION OF 350 UNPAID WORKERS OF THE AGENCIES Professional Occupation Other Agency Ministry Educational Professions Total Heal Ba ok paged ee PA a Se 18 69 12 99 POOLS Ph Aah cae ots oo 2 62 42 20 124 RU ORAIA SOV Saree os Wide. dy ouch ys 80 111 oe 223 WN Aa tes gee et. cg dens 0 70 5 75 ROC OULS hls cah a vile, «wie 4 0 19 4 23 Manpirire Girls .). 0). 56. +0 0 26 3 29 PROCATARSILIS byw oiais cates weve als 0 Alo 12 127 Total Agencies ......... 80 226 44 350 102 HOW SHALL COUNTRY YOUTH BE SERVED? TABLE LVII—DISTRIBUTION BY OCCUPATION OF 703 UNPAID WORKERS OF THE AGENCIES Per Cent. Distribution amp Boy Girl Fire Total Y.M.C.A. Scouts V.W.C.A. Scouts Girls Agencies Number of cases .... 190 275 120 61 S7 703 Occupation Agriculture (....... 8.4 4.0 0.0 3.3 0.0 4.1 Extraction of min- Cr alsa oye ae Hues 0.0 1.8 Manufacturing and mechanical vo,.0.0% 12.1 18.2 Transportation) a. PL PACE ec Meee wees Public service ..... Professional ....... Domestic and per- on) a) 2 o —) N Sod iy) pak > So 2S SS — — 00 OO — SONOrS AN jad — on hs cin NT} Nor SHON Boe [Sal mOONin BiANnt a Ov we ww PODER NOOO OWRD NOOOD on A DO SERA Nooo Housewite (2) akan. Stidentiy fe ace wee bet NOW © onrohe ONDANY UOSCS — bet CO UT SOON Oe OO pet peed | : med ae) ae | oO LOtal. sur sinecwany 100.0 100.0 1000 100.0 100.0 TABLE LVIII—DISTRIBUTION BY HOURS PER MONTH GIVEN TO WORK OF THE AGENCIES BY 257 UNPAID WORKERS Per Cent. Distribution by Years of Age w aA OG Sb on pM Pa = es gt es 2 eee eels ™~ si Oa (ORD, > | 2 es eS eae S38 ro) AN | i | | | ! Sy 5 Agency Ot) eee A Ch tsa eh P| pa OMT NET Ra ie 59 1'20.3 0.01) 26.0. (00) 934 17) 7a) O.0ea ee Boy {Scouts §..9103- 907.8) 204" 25.3 18.5) 11.6 8.7) TO OfreS eee VW. CAL Bare N28 i145) 939.8 017.90 0717. FLOOR OLE LO Girl) Scouts: seWi31) | 3/24 29,0 > 35.5!) 59:70" 6,50, 9.7 0 oe Oe ae Camp Fire Girls’ -36) 16.7, 60.5333" 56°56 257 0000) ‘Sis eat ae ° cr ob) — Le) qn “NI js i) — bh OO oO RQ NI nN — p— ios) NJ io.) ON bo — Oo — a) Sal = S S&S TABLES 103 TABLE LIX—DISTRIBUTION BY YEARS OF SERVICE DE- VOTED TO THE WORK OF THE AGENCIES BY 425 UN- PAID WORKERS Per Cent. Distribution by Number of Years No. of Under 10 and Agency Cases 1 yi 2 SA A als Giro aay ver LOUIE ens tr l02 35.3) 20.6./17.00' 85, 4.9569. 2.0700"1.0700>2,9%100,0 MtiveecOutsen1/5 204.1 214A! 119s 9.2" 3.97 4.6,/1 2) 4.073551 2.5.8 3100.0 VEMVG wee FO ole LOL Geld O44, 2/2 ee OO er. O04 LATTA 100.6 fritlsocotts. 34 32.4; 20.6°°23.5 14.7. 30°29 0.029 0040.0) 0.0,7100.0 Camp Fire tig sees 407 09.0 19,9 716.5 211.6 (11.67 0,0' 6.0 10.0708 2:3% 2.39 100.0 se en Total .... 425 329 21.9 15.5 111 4.5 4.0 09 24 24 09 35 100.0 TABLE LX—DISTRIBUTION BY OCCUPATION OF MALE COUNTY COMMITTEEMEN AND OF LOCAL GROUP LEADERS Per Cent. Distribution of County Local Occupation Committeemen Group Leaders CPCS TES UM ERS ASS SL SR 10.5 5.8 DM EES TT ait ROR, a Ra at Se Ht OD Bio a 0.0 1.1 a CEUT Ga Ou as aaterclaiso ack «ia iiaie 64 20.4 15.7 PEPE LATION Lees Sis icles aisles ms bis lens 0.0 Le er Abe emi es ce ake ne ise abe We Sod 14.8 Per TeS aI Senne tae ue Ca ye Kaul oig its ot 28.1 48.0 Berta EE VICES 1s ty ate ia ak sie hn eee 0.5 1.1 ROIS CE VICE Moe oh Stoke oe is Givin ers ee ae 4.8 uz ieee peek oe ene S58 vel a ea g 0.0 4.3 ACGME ee Cie i sees te ees 0.0 3.4 BE CUCL OE ree fi chy Sule ee estas sates 0.0 0.4 GLAM Roly ss or iis alee ohay onvienls has 100.0 100.0 CHAPTER VII INTENSIVE SUPERVISION In the theory of territorial organization as defined in the manuals of the national agencies, there is assumed to be a definite localized unit with its members, officers, committees and systematic functions. This organization is related to the national agency in prescribed ways. It needs a territorial executive for its proper functioning and employs one. The national agencies try to secure and make available a body of properly trained and accredited men for these positions. The facts, as actually encountered on the field, prove that many of these territorial organizations are most nebulous, having indeed little reality apart from the presence and con- tinuous effort of a local territorial executive who is regarded as the representative of national headquarters. Most of them have no accustomed means of functioning, and do not function when without an executive; and in popular understanding and action when the executive is gone the organization is dead. Measures necessary to revive it after the prolonged lapse of executive leadership have most of the characteristics of new organization. In short, the executive is more truly a locally paid supervisor of the national parent agency than he is an independent executive of a local territorial organization. How far this unusual dependence is owing to the recent origins of most of the agencies is left for discussion with other problems at the end of the chapter. The paragraphs imme- diately following present data concerning this uniquely indis- pensable man, whose assumed values are taken for granted. He perpetuates, extends, directs and standardizes the work within his territory, and secures its financial support. The generalization on this point is based on the cases of seventy- 104 INTENSIVE SUPERVISION 105 four county executives and assistant secretaries in the counties studied; fifty-eight men and sixteen women. CHARACTERISTICS OF THE TERRITORIAL EXECUTIVE The average executive of a county or comparable district is a well-trained person, from thirty to thirty-five years of age,’ who starts into his work on leaving college, or shortly after- ward.’ Half of the executives have had some technical educa- tion of the academic sort for the particular job they hold.* Just half are country bred.® They have had, on the average, from four to seven years of professional experience in the lines of their present work or of other closely allied work. Most of them have been on their present jobs only one or two years.’ The most representative salary for men is about $2,800; for women $1,800.° These are accounted good salaries by the communities that help to pay them, in the light of what other rural professional workers receive. The secretaries of the Young Men’s Christian Association (the only agency reporting on this point) tend to leave the rural work after about six years, either by transfer to some other phase of service or otherwise. DIFFERENCES AMONG AGENCIES The average age of male executives is nearly five years be- yond that of females. The maximum age with the former is fifty-one; with the latter forty. As to education, the Young Women’s Christian Association has the highest per cent., and the Young Men’s Christian Association the lowest per cent., of college graduates.” As is well known, the Young 1 Table LXII. 2 Table LXIII. 8 Table LXIV. 4Table LXV 5 Table LXVI. 6 Table LXVII. 7 Table LXVIII. 8 Table LXIX. 9 For the two agencies for which approximately comparable data are avail- able, the showing based on the sample drawn from fifty-three counties almost 106 HOW SHALL COUNTRY YOUTH BE SERVED? Men’s Christian Association and the Young Women’s Chris- tian Association have well-established training schools for pro- fessional workers. It is only natural therefore that they should show a higher proportion of executives with technical training for their positions. A further significant difference is that more of their workers have had long experience than have those of the Boy Scouts. The Boy Scout executives also show shorter average tenures; but this may be owing to the greater recency of the work in the area studied. As to environment, half of the Young Men’s Christian Asso- ciation and Boy Scout executives are country bred, to only one-third of Young Women’s Christian Association execu- tives. Boy Scout salaries are appreciably better than those of the other agencies. No data as to marital condition were secured except ee the Young Men’s Christian Association. Nearly all of its executives are married, and of these, four-fifths have children. OBSERVED TYPES Aside from such factual generalizations, and beyond such obvious differences as those between novices and experienced workers, certain clearly marked types, as determined by pro- fessional origins and previous experience, are evident. Of male executives, it is easy to distinguish— (1) the man trained primarily on the job—a volunteer who came up from the ranks and became a paid worker ; exactly agrees with that nationally reported in the case of the Young Women’s Christian Association, but shows fewer college men in the case of the Young Men’s Christian Association. It should be said that the categories in which the information was gathered are not absolutely identical and a re- interpretation of the data might possibly modify it in some respects. EDUCATION OF PAID COUNTY WORKERS OF TWO AGENCIES Degree of Education of Worker Vive AG YU Mica. Grammar High Col- Grammar High Col- Item School School lege Total School School lege Total 53) counties i515 os 0 1 12 13 3 10 21 34 National Reports .. 0 2 27 29 0 26 100 126 INTENSIVE SUPERVISION 107 (2) the product of the agency training schools, a hand-made professional and specialist. Of male executives not to the manner born—and sometimes fitting into rural communities all the more readily because they have been previously associated with their indigenous agencies—are : (3) the former school man; (4) the ex-minister; and (5) the former business man. The characteristics and methods of all of these are often strongly stamped by their previous vocations. Of female executives one finds— (1) the girl recently out of college who has had a course or two in work for boys and girls. No corresponding male type was found in appreciable numbers; (2) the product of agency training schools or of technical schools for religious or social workers; (3) the former school-teacher, and (4) the woman who has been housewife and mother. This last type is more often found where the work involves the opera- tion of dormitories or headquarters buildings. About one-sixth of the executives had associates or execu- tive assistants. Among this number were found the begin- nings of specialized types like physical instructors, clerical or financial specialists, or secretaries devoting themselves to narrow age-groups. But five-sixths of the total number were “general practitioners” attempting to conduct the whole range of the functions of their respective organizations.”° WHAT THE PUBLIC THINKS OF THE WORKERS Public opinion rates the executives higher than it does the total value of the work, 88 per cent. of the verdicts of repre- sentative citizens being “excellent” or “good.” ** Complaints were sometimes softened by the recollection that the executive is frequently overburdened and does not have good backing. 10 Table LXX. 11 Table LXXI. 108 HOW SHALL COUNTRY YOUTH BE SERVED? Weaknesses are generally specific, as, for example, “The Sec- retary is a poor financier.” No moral black sheep were found in the employ of any of the agencies. The average ability is high and the best very good. FUNCTIONS OF EXECUTIVES AS PROFESSIONAL SUPERVISORS Beyond the most general version of the executives’ work, as already indicated, it has four classes of regular and obvious functions: (1) supervision of. organized local groups under volunteer leaders—who have to be found, trained, kept at their work and in touch with and up to the standards of their respective agencies; (2) carrying on of general central func- tions, such as extension and promotion, the keeping of records and making of reports, financial administration, leadership training and usually the conduct of general gatherings such as conferences and camps; (3) occasional cooperative and service activities in local communities outside of organized group- work; (4) sometimes the management of some special service activity for the headquarters community, such as the manage- ment of a community building. So many of these functions are necessarily performed out of sight, or are beyond the notice of the casual observer, that one gets a certain shock from a statement of what the execu- tive’s work seems to the public. On the testimony of repre- sentative citizens throughout the communities studied, the Young Men’s Christian Association secretary is regarded most frequently as a public recreational leader. The Young Women’s Christian Association secretary is most characteristi- cally thought of as the person whose business it is to look after poor and bad girls. The Boy Scout executive is recognized as an executive and business agent rather than as one whose chief value lies in the field of personal relationships with boys. In general it is safe to say that those duties that are laid upon the executive by the national agency are less appreciated by communities than direct services rendered there. The field study found executives engaged in all phases of INTENSIVE SUPERVISION 109 the tasks above outlined; but since it did not take actual job- records over a period of time, it is impossible to bring its ob- servations to any exact statement. The executives were con- cerned with such activities and problems as the earlier chapters of the report have presented. Some were just going about the business of organizing in new territory. Others were struggling with the results of past policies, of inadequate starts and ups and downs of fortune. Virtually all felt that the distinctive ideas and basic loyalties of their respective move- ments had been inadequately acquired by their constituencies. Many regarded the traditions of the people with whom they were working as narrow and reactionary. With scarcely an exception they were finding finances a perennial problem. A few were experiencing the collapse of their organizations and the bitterness of defeat and failure. Besides the ever-current need of developing local responsi- bility and preventing volunteers from slipping their tasks back upon the executive’s shoulders, the administrative problems with which they were most often engaged were: (1) How to tell what to do next. Performing, as they have to, a varied and largely unstandardized set of tasks, there was great lack of certainty among executives as to the rela- tive importance of the tasks, and there were many confes- sions of the danger of diffusing effort and “spreading out too thin.” (2) As has already been intimated, numerous cases were found where the executive felt that he had to give too much time to finances, and where the burden of financial responsi- bility was seriously impairing efficiency. (3) The quest for local teaders, and the effort to keep them in good heart and at their jobs, and to give them a little systematic training, were met with as pressing duties every- where. (4) Almost uniformly, except in the flush of first organi- zation, it was said that there must be the firmer establishment of existing work before expansion could be undertaken. Ex- ecutives felt driven by duties already laid upon them, and had little heart for attacking new fields while those already occu- 110 HOW SHALL COUNTRY YOUTH BE SERVED? pied so often threatened to lapse whenever the leaders’ backs were turned. (5) Dissatisfaction or revolt on the part of local units some- where in the field were occupying and troubling many execu- tives. In brief, the actual consciousness of the local executive is conditioned by his sense of limited personal strength and finan- cial support. He strives for certain technical excellences in the routine work he has to perform, and tries to improve the local or county-wide functions over which he presides. What- ever professed theory he may hold about the duty of reaching “the last boy in the county,” his actual standard of performance and of success varies about the average which he knows his predecessors or similar workers in other counties have achieved. HOW MUCH CAN ONE SECRETARY DO? An occasional secretary was found who did not regard as his primary duty that of organizing and maintaining local groups of boys and girls to carry out a recognized program. Group work was so much the most common form of activity, how- ever, as to yield the most nearly adequate basis of comparison. The average number of organized groups found in a county or equivalent supervisory district was eleven per agency. The tendency to find them chiefly in the larger and more accessible places has been discussed in a previous chapter. ‘The total is not specially impressive. It should be compared, however, with the total for unorganized territory. Where there is no intensive supervision by paid workers, the average range is from one group per county for the Young Men’s Christian Association to four for the Boy Scouts. This is as far as permeation is likely to go in a given territory. Where there is territorial organization with one paid worker, the range is from eight organized groups in the case of the Young Men’s Christian Association to fourteen for the Young Women’s Christian Association and sixteen for the Boy Scouts. Where there is more than one paid worker, the range is from eleven groups with the Young Men’s Christian Association and INTENSIVE SUPERVISION 111 the Boy Scouts to fifteen with the Young Women’s Christian Association. (The Girl Scouts and Camp Fire Girls are not included in this report except in unsupervised territory.) For all agencies, nine is the average number of organized groups per county when there is but one worker per agency, and twelve is the average when there is more than one worker. A second worker adds 50 per cent. to the first one’s work thus measured.** But, taking the United States as a whole, there are about twenty-five distinguishable rural communities per county. The amount and reliability of volunteer assistance developed is of course partly dependent on the age of the work. This factor probably accounts largely for the circumstance that some county executives can oversee three or four times as many units as others. It must be added that some have three or four times as much capacity as others to get other people to work. SUMMARY In character, ability and educational equipment, the execu- tives who have been studied are better than the conditions under which they have to labor. Many evidences have been given of the imperfect and unstable adjustment of the national agencies to rural civilization. The data, on the other hand, strongly reenforce the popular verdict of representative citizens as interviewed: These are good men and women who cannot always make good in what is still an unstandardized experiment. This is not to say that their outlook and training cannot be improved. Some of the considerations which the problem of supervision involves follow: FURTHER QUESTIONS AND ISSUES (1) Can territorial organization of interests as narrow as those of individual agencies ever achieve vitality in rural areas as large as counties but with as little average social integration as counties have? Successful examples of such organization were indeed 12 Table LXXII. 112 HOW SHALL COUNTRY YOUTH BE SERVED? found, but almost exclusively in urbanized regions. Ina few cases where the matter was pressed further, rather amusing evidence was found that the really responsible elements in such cases are preponderantly city people. This is shown in Table LXI. TABLE LXI—NUMBER OF COMMUTERS AND NON-COM- MUTERS ON CERTAIN COUNTY COMMITTEES OF TWO AGENCIES Members of County Committee Agency Commuters Non-Commuters North Bergen County, N. J., Boy Scout COUNCTIS RT Lee ies cae ee etc uit ae 18 10 Bergen County, N. J., Young Men’s Chris- tian nc aaa Ae eT Lede eka abe 14 6 Camden County, N. J., Young Men’s Chris- tian Associations, po vcs wise ste ere ntn sd acess Zh 0 Scoutmasters Camden County, N. J., Boy Scout Coun- CULT es Bate eh code a Oe es ei 14 3 Some of the reasons why territorial organization in strictly rural areas is difficult may be suggested: (a) Its ultimate units—the youth-groups—so frequently lapse as to communicate a sense of instability to the larger organization. (b) As hitherto conducted by the agencies, territorial or- ganization is generally without property, a visible center or material investment about which it might rally. (c) Its scattered membership (or supporting constituency) does not constitute a face-to-face group, like the membership of a local church or club. The majority of the members never meet, and little group loyalty results. (d) The territorial unit on which organization is based is often without unity. A county is frequently a political acci- dent, consisting of rival communities; and is not a natural basis of organization. (e) Local communities that want the work of any agency can get it by sporadic units, without territorial organization. They frequently have it in advance of organization and are not deprived of it by the lapse of organization. Some of these difficulties are perhaps irremediable; others could be avoided only by radical change of policy. All told, they seriously challenge the success of territorial organization quite apart from its financial costs, which are the theme of the next chapter. INTENSIVE SUPERVISION 113 (2) Since territorial organization is so unstable, and since the executive is so largely a representative of a reénforcing, directing and morally supporting national movement, can he adequately take the standpoint of local communities? Will he not probably continue to regard himself, and to be re- garded, not as a local man but as an agent of an external process? (3) Even if the executive succeeds in profoundly identify- ing himself with the local field, is he not driven to do so narrowly in the interest of his own organization? Are the conditions of success and survival such that the average sec- retary can be really a community-minded man? Can one with such antecedents and working under such conditions lead communities to get away from their rivalries and divisions and really to unite in the common interest of boys and girls? CuHapter VII, Continued TABLES TABLE LXII—CLASSIFICATION BY SEX OF 74 PAID WORKERS OF FOUR AGENCIES Agency Male Female Total VeVi Give Tage hd antes baeteares 2 Ae 36 fe 36 Bos Scouts oink. deh oe Waeneeree es ecteran os ae a 22 NOW A Sry rand aldose Cee ee ea a aioe y 15 15 Girl Scanits up cecs lee ea ee ae 1 1 TOUT socio Care ee AG en ene ee 58 16 74 TABLE LXITI~AGES OF 66 PAID WORKERS OF THREE AGENCIES Chief All Paid Workers County or District Executives Ages in Years Ages in Years No. of No. of Agency Cases Median Range Cases Median Range WAVE Guay Ncaenianaae 32 35 25-50 26 36 25-50 Boy sScoutshae ees 22 33 23-51 19 33 23-51 LW Goya ee ere 12 3l 23-40 11 30 23-38 TABLE LXIV—DEGREE OF EDUCATION OF 68 PAID WORKERS OF THREE AGENCIES Chief County or District All Paid Workers i Executives Es polenta ete es su ees Agency 0 Coats cede SC) a ee OH HH GO & Y.MSGIAG a ae 3 10 21 34 3 8 17° ize Boy ‘Scoutseyic. sear ee 0 4 17 21 0 4 16 20 YOAWiGAL ei eee 0 1 12 13 0 0 11 11 TABLES. 115 TABLE LXV—TECHNICAL EDUCATION OF 68 PAID WORKERS OF THREE AGENCIES Chief County or District All Paid Workers Executives Number Number Having Spe- Having Spe- No. of cial Academic No. of cial Academic Agency Cases Training Cases Training SL LGR hy OR A eae 34 21 28 19 UTE Use ea 11 ag eg 21 4 20 4 NG acs al a's ce wh Ce nad 13 8 11 7 TABLE LXVI—EARLY ENVIRONMENT OF 49 PAID WORKERS OF THREE AGENCIES Chief County or District All Paid Workers Executives % 2 e as CMe 7 TH A Jee Agency Est Be ba ae nee em AS Ss tte if RGA alidacs le 3 Tes See 3 3 22 14. Po 2 ce 2 8 21 Boy Scouts ...... 7 ASS 1 15 GieZ 5 1 14 PVE AEE SA aS EN wo LO Ab eee ee 1 12 A Bun ie 1 11 TABLE LXVII—PROFESSIONAL EXPERIENCE OF 69 PAID WORKERS OF THREE AGENCIES Years of Age Chief County or District All Paid Workers Executives No. of No. of Agency Cases Median Range Cases Median RPIVEG CANS Vines, ayia > 0 34 Z Less than 1 to 24 28 9 PROM TeOIES) Cit es aoe 21 4 Less than 1 to 25 20 4 Cake detec av dog) LS 6 Less than 1 to 12 13 6 TABLE LXVITI—LENGTH OF TIME IN PRESENT POSITION OF 70 PAID WORKERS OF THREE AGENCIES Years in Present Position Chief County or District All Paid Workers Executives No. o No. o Agency Cases Median Range Cases Median yh OF 34 2 Less than 1 to 17 28 3 eee SCOUTS ces 21 1 Less than 1 to 8 20 1 PAS See es 15 2 Less than 1 to 8 13 2 116 HOW SHALL COUNTRY YOUTH BE SERVED? TABLE LXIX—SALARIES OF 72 PAID WORKERS OF THREE AGENCIES Amount of Salary Chief County or Dis- All Paid Workers trict Executives No. o No. o Agency Cases Median Range Cases Median YA CA im Ack 35 $2,700 $1,800-$3,500 28 $2,725 Oye OCOULS acne ey 21 2,750 2,000— 3,800 * 19 3,000 BY OA Wy Bx, Reta Ley +5 1,800 1,500-— 2,300 13 1,800 * Range for chief executives, Boy Scouts, $2,200-$3,800. TABLE LXX—CLASSIFICATION BY POSITION OF 74 PAID EXECUTIVES OF FOUR AGENCIES County * Executive Agency Chief Associate bg BOY Na tate CaN SARE ncdro th caddie th oe We Tte 29 7 Boy: Scouts ct eee eee eee eye 20 2 YW..CGrAY 6 i ee a a en 13 2 Girl Scottsys) ih2 se baie an Gee eee oes 1 0 T Otel 5 S328 Sse cae 6. ee Sn er & 63 11 “Includes comparable district executives. TABLE LXXI—OPINIONS OF REPRESENTATIVE CITIZENS REGARDING THE ABILITY OF 51 PAID WORKERS OF THREE AGENCIES Distribution of Opinions About Workers No. of Paid Agency Workers Excellent Good Fair Poor Total YM CoAl Pe aoe 26 37 185 7 12 241 Boy Scouts .0 7 bus 8 29 7 11 55 YAW GAN eae 9 28 3 2 42 TABLES 14 tg TABLE LXXII—NUMBER OF ORGANIZED UNITS OF THE AGENCIES IN COUNTIES WITH SPECIFIED NUMBER OF PAID WORKERS Number of Units Per County Total Number Agency and Workers of Units Median Range Dan LEREC Asics cas ks Dore es Bee etl 365 DART WOL REL ont set pons oa ee eee es 1 RUC AI WORKER 95 ac 2G Uctda dit. Hatha wis 7 1-24 Units per paid worker when more than one 11 2-23 PAT SCOULS fy) ons es hadic ic tote ge oe Oe ek 425 PROT DAL WOLKert bial ws. Reece arabe 4 1-13 Sie Dail WORKER )4o5 ve cig ieee ok eee ee 16 1-28 Units per paid worker when more than one 11 10-24 NEEM Cee ARO REST AAC EN Comm MEG RE mR te 250 BORIC WULKEL ce nic on Ae whe Fa bai shte ate 2 1~ 9 EU EeE na AVOTMOL) ool airs sree Sok ele wankers ' 414 9-19 Units per paid worker when more than one 15 7-20 MRE AETSCEMICS Mei use ssn oe ae te Gee Leis «eta Patt Se 128 BarData WOLKEL Ss ca aoe Geis rats dai vols 3 1-16 May ILesOiIrls Pusey ade ee eee ek 100 ECAC VOLKET ie aah. Mele a hele ble beat a 3 1-13 POOR Ere Soe a hat Se ils cg ane Minova: ack basa bee 1,268 DED AN AUIOT ETI che pales evi clas eA Ia mre Be 8 1-16 SPADA WOLKEL. vars sok cs ee ails cate 9 1-28 Units per paid worker when more than one 12 2-23 CuHaptTer VIII FINANCES OF TERRITORIAL ORGANIZATION Where a national movement is not intensely organized but is represented in a given area only by sporadic units of local origins—as are 46 per cent. of the cases in the territory studied —no appreciable financial problem occurs. It is true that the study sometimes found the fees and payments exacted by na- tional agencies a deterrent to such organization, and that the local choice of agencies was sometimes dictated by the cost of their respective uniforms! Generally, however, the expenses of the sporadic unit are regarded as incidental, and are carried either by the local sponsoring agency or by the individual members. The financial problem of rural work for boys and girls is essentially that of the cost of intensive supervision. ‘This, as will shortly be shown, takes by far the greater proportion of all the money raised by territorial organization. In the testi- mony of representative citizens, and as sensed by the experi- ences of field study, this is the only problem that penetrates vitally to the public. A typical year’s procedure of the agencies was rather ungraciously described as follows: A father and son banquet preceding a financial canvass; then complete quiescence until another father and son banquet preceding another can- vass. And however unjust, this expresses a typical attitude. The present chapter deals with fact and opinion concerning this major problem of finance. FACTS OF TERRITORIAL FINANCE The median annual cost of the county agencies for boys and men is between $4,500 and $5,000, and of the Young Women’s Christian Association $3,058.12 The difference is 1 Table LXXVI. 118 FINANCES OF TERRITORIAL ORGANIZATION 119 due primarily to the smaller salaries paid to women executives. Budgets of above $6,000 in nearly all cases represent salaries paid to assistant executives or else activities involving property and business transactions. From 8&4 to 95 per cent. of the total support comes from annual subscriptions; fees and rentals, which constitute so large an element in the support of the city Young Men’s and Young Women’s Christian Associations, being almost negligible. These facts are shown comparatively for three agencies in Tables LX XIII and LXXIV. TABLE LXXIII—INCOMES OF 57 COUNTY * ORGANIZATIONS OF THREE AGENCIES Amount of Income No. of Agency Cases Mean Median Range Bee i thes Co Oe ae vi, 27 $6,031 $4,516 $1,667-$20,185 WSOP COTS ie ay Lora ve see 17 6,045 5,178 2,646- 13,750 *s by ACh SAT 9 Grea aaa apa 13 4,893 3,158 2,400- 17,672 *Includes comparable district organizations. TABLE LXXIV—DISTRIBUTION OF SOURCES OF INCOME OF 47 COUNTY * ORGANIZATIONS OF THREE AGENCIES Per Cent. Distribution by Sources of Income < aout was ee ee ye Pa iY! SSP ey Sliaeay Ny ence +S ene Pa) = = S Agency CS ies Wt ON) sy ner on Aye Raed KOM es AGN Se a PURO An GIUW BS) 11,5. 20 CALL) BHT OLD Boy Scouts ......... TAOWO4S 105 00 OL) O.01071.9 027 1000 BN AAG oe dist 13 eB Ged wit Sa 150) 0.0.0.0 FON) * Includes comparable district organizations. Expenditures ? naturally closely follow incomes. From 51 to 63 per cent. of the total income is expended for salaries. Costs of operation absorb from 17 to 24 per cent., transporta- tion from 6.3 to 9.5 per cent., and payments to overhead organization from 2.5 to 5.2 per cent. As among the agencies, the greatest variation lies in the “other expenditures,’ due to the varying nature of their programs. This appears in Table LXXV. 2 Table LXXVI. 120 HOW SHALL COUNTRY YOUTH BE SERVED? TABLE LXXV—DISTRIBUTION OF EXPENDITURES OF 54 COUNTY ORGANIZATIONS OF THREE AGENCIES Per Cent. Distribution of Expenditures Payments Trans- to No. of Sal- Cost of por- Over- Agency Cases aries Operating tation head Other Total VLG ase tats 25 62.7 19.5 9.5 2.5 5.8 100.0 Bay Scouts: 775.4, 16 54.8 23.8 7.4 3.2 10.8 100.0 Y.W.C.A 13 51.4 17.0 6.3 5.2 20.1 100.0 The total work of the agencies has a median cost per county of only $3,900 for a single agency working for boys and men, or $3,000 for a single agency working for girls and women. The median cost per county of two agencies for boys and men in one county is $11,609, compared with $8,300 for two organizations for women and girls. Where there are three organizations in the county, the median total cost is $12,626.* FINANCIAL METHODS AND SHORTCOMINGS The most frequent method of raising money for the support of overhead organization was an annual canvass for subscrip- tions—on the basis of quotas assigned to the several communi- ties. The agencies generally did not usually succeed in culti- vating financially the entire area which they were supposed to serve. Very generally the cities are sponged upon by the rural districts, and scattered individuals are looked to rather than communities as sources of support. Just as it is easier to organize the larger and more accessible places, so is it easier to cultivate them financially, and the same discriminations were found as in the matter of occupancy. A good many complaints against the alleged competitive appeals were found. The financial tradition under which the agencies work is crude and lacking in professional dignity. Reaching out from the cities into suburbs and related rural areas, the Community Chest movement was found in a few instances. Sometimes it assured the rural work of more reliable support than formerly, some- times it limited it, but always it necessitated readjustment of methods and relationships. 8 Table LXXVII, FINANCES OF TERRITORIAL ORGANIZATION 121 REPRESENTATIVE OPINION ON FINANCE The state of county finances was pronounced “‘good” in 116 out of 190 interviews whose verdicts could be definitely classi- fied, and “poor” in sixty cases; while the verdict in fourteen cases was indecisive. Judgments concerning a given county or community usually agreed, the main differences being that responsible county officers commonly reported less favorable conditions than the average friendly but non-participating citi- zen did, and that women inclined to hold more roseate financial views than men.* IS THE WORK WORTH ITS COST? There was considerable tendency to make financial verdicts determinative and final. The human values of the work of the agencies were not infrequently weighed over against its finan- cial costs, with a considerable number of conclusions that the results were too small for the amount of overhead charges; or that the cost was beyond the wealth of the community; or that it took too much of the secretary’s time to raise his own salary. FINANCES RATED BY FIELD INVESTIGATORS On the basis of all the data available the investigation has attempted to rate the present financial condition in sixty-five cases of county organizations where the problem could be ade- quately studied. The results, as expressed in loose categories, are as follows: BT OO is tia ete eae A rae Re Mn Aa Ua ecu 1 COO Te Mice aes ee tens eae ee a Pee io ek wee et areata 30 LAS Pet ROE HABE ysis Sido El UP may de tC Pe DO AD a 17 POO Lads hc iin eae ree Pan ER Ce ah el arn Oa 8 ES CU WOCIOL sheen YOANN OA NEE Nee MENT s’siat vind nae din oc aee 9 The category “‘very poor” includes several cases where work has temporarily lapsed, largely for financial reasons and where 4Table LXXVIITI. 122 HOW SHALL COUNTRY YOUTH BE SERVED? its revival is problematical. The facts are shown in further detail in Table LX XIX. WHAT TURNS THE FINANCIAL TIDE? The financial quality of the work does not depend upon the number of agencies in a county, except where the number is extreme;° nor, in the counties studied, does it depend upon differences in rural wealth, judged by the available criteria.° Where cities are in reach it is apparently city support which turns the scales toward financial success. Beyond this the con- ditions of success are not clear. It does not appear to depend upon the widely distributed wealth of the community as much as upon the generosity of a limited number of backers. SUMMARY The costs of rural territorial organization, for the agencies studied, are not extravagant, nor does their application of ex- penditures seem unreasonable. How much of a financial bur- den it is to raise $3,000 or $12,000 in a county depends ulti- mately on its wealth; but the results appear to have no trace- able connection with general wealth, because the sources of support are personal rather than popular. Most of the money raised goes to pay for supervision. Much of it is raised with grave difficulty and the most frequent doubts expressed about it concern the value of the supervision for which it pays. FURTHER QUESTIONS AND ISSUES (1) At the rate of cost as above revealed, how far can intensive supervision of boys’ and girls’ work by national agencies conceivably be carried in rural America? At the present rate it would cost nearly $10,000,000 a year to sus- 5 Table LXXX. 6 Where the agencies have organized, their finances do not vary directly with wealth. But they have never organized in average counties. The average value of farms in the counties chosen as typical of the occupied rural field of the agencies is a half more than of the country as a whole. Neither have the agencies failed in poor counties. A study of farm values in areas in which the lapses of one of the major agencies have occurred show that they average virtually the same as those in which it has survived. FINANCES OF TERRITORIAL ORGANIZATION 1238 tain one executive of one agency in every county of the United States; and the agencies have not shown themselves satisfied with one per county. Unless very different and much better work were done, he would reach only one sex in not more than half of the communities of the average county, and they generally the least needy ones. Can gen- eral extension of the present method of supervision on these terms be anticipated? (2) Is financing justifiable, even when successful, when it takes most of the time of the executive to raise his own salary and maintenance charges? (3) Is the 3 or 4 per cent. of territorial income which goes to the support of national agencies “successfully” raised, in the light of the suspicion and criticism which it frequently entails? (4) Should support be raised from the country at large to finance rural work in the more needy counties? Does the nation owe it to herself and to her most essential workers to do this? If so, on what terms? Are the policies of the agencies such that they should be entrusted with such funds? CuaptTer VIII, Continued ABLES TABLE LXXVI—EXPENDITURES OF 57 COUNTY * ORGANIZA- TIONS OF THREE AGENCIES Expenditures No. of Agency Cases Mean Median Range ef BT WO ee fea ya ae ALS fie $5,899 $4,500 $1,613-$20,185 BOY MCOuts hele naa 16 6,194 5,300 1,853— 13,700 WOW: GlALOG Cel eae eee 13 4,818 3,058 2,402- 17,602 Includes comparable district organizations. TABLE LXXVII—COST PER COUNTY OF 37 COUNTY ORGANIZATIONS Cost Per County No. of Counties unth Cases Mean Median Range One Agency FOL ales 2 csc clean eae er ee eee 19 $4,292 $3,900 $1,667— $9,750 Por itemales eet wea =) 5,820 3,000 2,475- 17,672 Two Agencies Hor iaiests 7.6 enue te ares 4 12,066 11,609 9,500- 15,546 One for males and one for females 8 10,313 8,300 5,900- 17,717 Three Agencies All forimalés ian) cavic ain We cals 1 12,026 0126260 7 eee Total aige ae ates eat eine chosen 37, $6,866 $5,070 $1,667-$17,717 TABLE LXXVIII—OPINIONS OF REPRESENTATIVE CITIZENS REGARDING THE FINANCIAL CONDITION OF 47 COUNTY ORGANIZATIONS OF THREE AGENCIES Number of Opinions No. of Agency Cases Good Uncertain Poor YMCA SPS ee ie ero ey ons, 22 72 8 32 Bey) Seouts 5 Je Ce a eee, 15 32 3S 14 VOW eee Ley aire hn 12 3 14 TABLES 125 TABLE LXXIX—FINANCIAL CONDITION BY REGIONS OF 65 COUNTY ORGANIZATIONS OF THREE AGENCIES AS RATED BY THE INVESTIGATION Rating : Very Very Agency and Region Good Good Fair Poor Poor Total Y.M.C.A. Bee AISI DLS iii la da et ees 0 3 0 0 0 3 Werte tannic)... 6. 2igus le 0 4 1 1 1 7 SEITEN UAE. kc ielc Lok he eae 0 0 0 2 0 2 Bast North Central ..:.. -222. 0 2 2 0 1 5 West tiorth ‘Central’., 234 0 4 2 1 2 9 jt A RY Sn eS an i ae 1 0 1 1 2 5 SrA Wats Gore Scere AGA one 1 13 6 7 6 31 Boy Scouts Pre wWeengiand ty..k een eee 0 Z 1 0 0 a Datiole Atlantic 14 .4.as ob. ast 0 4 0 0 0 4 MET eu ec cee aes 0 1 A 0 0 3 Bast Worth Central. 5... .0... 0 1 3 1 0 5 WestuNorth.Ceritral:. ct o\ds este 0 0 0 0 0 0 ESTE (os GATING Cae ON LR 0 3 Z 0 0 5 Sri Ue Pre OR A! a by\orene $4.7 vue bak 0 11 8 1 0 20 enV CA) BREW eT IDIAIN oh ee cuaclie es h4 0 1 0 0 0 i Middle Atishtic: oo) ie. hee. 0 1 1 0 0 Z SEC EULGY dp a He Re aeRO UG ied ea 0 1 0 1 z 4 ast orn, Welitral 2.5 ...+2 «6 0 0 0 0 0 0 Wreestavortn Centralife... ..s << 0 Z 1 0 1 4 TE STINGe pei 8 SCR area aN 0 1 1 1 0 9" Cafg) os 8 Bets ln, Ge os eRe Dern eae 0 6 3 2 3 14 Te Ba Fer 9 a eg 0 6 1 0 0 7 VCE VONTLANIIC Cao ks alias cue es 0 9 2 1 1 13 DITtIO OTIC, os oa ee sidis. fie ee ote 0 Z 2 3 2 9 Hast North Central oi, ea 0 3 5 1 1 10 West North Central ........... 0 6 3 1 3 13 RAC RCM es tata te ance sew acd wissen 1 4 4 2 2 13 AS ed Ws OP A 1 30 17 8 9 65 TABLE LXXX—RATING OF THE FINANCIAL CONDITION OF THE AGENCIES IN COUNTIES WHERE THERE IS MORE THAN ONE AGENCY Two Agency Communities Frequency Ist Agency 2nd Agency of Occurrence Very good COOC ee etre teee parte RETR Co: Cee Pegi aree nels 1 Good as ‘SEN a saa ois ‘= D ..5 = 3s hes XN 8s oD $ vo .V'S ete ING Sythe is “S = Gee On ; Des S$ = s 8 Sei 8N8 = s syn ae: = a SN REE if eat SHS Ohi SO S aS ees 8 eS s8 See 38'S ='S\5 SETS aS) endo) O86 COBH Competitive Aspects PME MON TITICTIDETS 4) v5 bc bid Belkan oc ese k bea aslo hes nate a ae 8 Trams Bi WOU e ass th re dais ee co Maen een eee aan 4 ReohiG OC), sO ee UG Ae ace re he tees Red es ted © eee 1 March-May, 1924: Tabulation of general and county data. Con- ferences with representatives of agencies and study of head- quarters documents. May 20, 1924: Presentation of Preliminary Report (of 170 type- written pages) to advisors and all-day discussion at the Pres- byterian Board Rooms, 156 Fifth Avenue, New York. Resolution adopted: “We have heard with deep interest the report of Dr. Douglass for the Institute of Social and Religious Research and express our appreciation of its exceptional value and receive it as an advance of the thinking upon this whole area of work; we hope to see it published by the Institute and the studies carried further in these directions: (1) a statement of the under- lying purpose of the organizations investigated; (2) a statement of the results they have attained; (3) a description of their programs.” June-September, 1924: Tabulation of community data and study of the results. June, 1924: Presentation of the preliminary report to meeting of National Social Agencies Doing Rural Work. September, 1924: Completion of second part of preliminary report. October, 1924: Authorization of preparation of an abbreviated complete report for the use and criticism of the codperating agencies, and appropriation for publication of a brief popular book based on the report. December, 1924: Completion of abbreviated report and circula- tion to agencies. February 24, 1925: Second Findings Conference of representa- tives of the agencies, other rural experts and project staff at the Fraternity Club, Thirty-eighth Street and Madison Ave- nue, New York City. Presentation of total preliminary re- port (200 typewritten pages), discussion and recommenda- tions. May, 1925: Completion of report in its present form. APPENDIX II LIST OF COOPERATING AGENCIES Boy Scouts of America. Federal Council of Churches of Christ (Commission on Councils of Churches). International Sunday School Council of Religious Education, Young Men’s Christian Association. Young Women’s Christian Association. The Girl Scouts, Inc.* 1 By informal action, after the study had begun. APPENDIX III ADVISORS Dr. Walter S. Athearn, Boston University, Boston, Mass. Miss Mary Meek Atkeson, 1821 Lamont Street, N.W., Wash- ington, D. C. Dr. E. deS. Brunner, 370 Seventh Avenue, N. Y. City. Pres. Kenyon L. Butterfield, Michigan State College, East Lansing, Mich. Mr. G. E. Farrell, States Relation Service, Dept. Agriculture, Washington, DG: Dreatreg. iia tetict (Bay. Scouts of America, 200 Fifth Avenue, Dey Cay, Dr. Charles J. Galpin, Dept. of Agriculture, Washington, D. C. Mrs. Walter H. Gilpatric, 20 Midland Avenue, White Plains, INA A) Dr. Roy B. Guild, Federal Council of Churches, 105 E. 22nd StreerN iy. City. Mr. Clark P. Po lea Phelps Farm, Milan, Pa. Mr. Henry Israel, American Country Life Association, Room 1849, Grand Central Terminal Building, N. Y. City. Mr. A. C. Reeves, Trenton Evening Times, Trenton, N. J. (YMCA, ) Mr. A. E. Roberts, 347 Madison Avenue, N. Y. City (Y.M.C.A.). Miss Henrietta Roelofs, 600 Lexington Avenue, N. Y. City (Y.W.C.A\). Mrs. Jane Deeter Rippin, 189 Lexington Avenue, N. Y. City (Girl Scouts). Mr. John A. Sherley, Eastern States Agricultural & Industrial League, Springfield, Mass. Mr. Elmer T. Thienes, 5 Haynes Street, Hartford, Conn. CYGMECTAY) Rev. Paul R. Vogt, 1701 Arch Street, Philadelphia, Pa. Mr. James E. West, Boy Scouts of America, 200 Fifth Avenue, NPR Se Cris Dr. Warren H. Wilson, Presbyterian Board of Home Missions, 156 Fifth Avenue, N. Y. C. 240 APPENDIx IV ESTIMATES OF MEMBERSHIP The following figures give the estimated number of minors in the membership of five national agencies in communities of 10,000 population and under. For reasons stated in the text they are only careful estimates. Agency Minor Members PRM COUIUSITCLE ss. 5 Gt 6 casa < sive Seikly on eve CERO me 216,000 cas Sk RI rR aa pe Po tee 30,375 UE Ne oA AT a AD My Bee Pin OT 33,000 SERIAL SAU icc eich oe Spier ena cle ee otola 26,000 lb Ne fe TEL TW OTT g Ce ap tcp cs Ga a aM Ops Pee Ld 25,000 PRI RPA a yr ee viele ef taco Ge teats 330,375 The Boy Scouts furnish about 62 per cent. of the estimated total. The method of rcaching the above figures is as follows: The Young Men’s Christian Association reports organized members in the Town and Country Department in its annual yearbooks. The figure quoted for this agency is based upon the reported members of groups (1923 Year Book, “Summary FE,” p. 115), to which is added an estimate for the membership of high-school groups or town and small city associations in communities of the size-group included but not under the town and country depart- ment. The Association also reports its total boy membership outside of city associations. This affords means of checking the figures. “The Young Women’s Christian Association estimate is based upon direct reports from the national office for members of organ- ized counties and members of Girl Reserve groups in unorganized rural territory, with an addition for the members of separately organized town associations in places of less than 10,000 and of rural extension clubs of city associations. The estimate for the Boy Scouts is based upon the Twelfth Annual Report (1921, p. 8), which shows that 48 per cent. of Scout troops at that time were in communities of less than 10,000 population. The average size of the troop appears to be about 242 HOW SHALL COUNTRY YOUTH BE SERVED? the same in urban and rural territory, so that it is fair to assume that approximately one-half of the Boy Scouts membership (re- ported at 432,995 as of February 15, 1923) is found in communi- ties of the size covered by the Town and Country Departments of the Christian Associations. Only 5 per cent. of Scouts “under council,” however, are found in towns of less than one thousand population (Report of Na- tional Boy Scout Commission on Rural Scouting, 1922, p. 3). For the Girl Scouts the basis of the estimate is extremely in- definite. There is no distinction between urban and rural in reports made to national headquarters, and the matter has been investigated in only one state, namely, Study of the Girl Scout Program in Relation to the New York Rural Community, by Dr. Louise Stevens Bryant (Girl Scouts, Inc., 1923). This study shows that in New York only one Girl Scout in seven is “rural.” But one Scout troop in four is located in a place of 2,500 or less, and the rural proportion for the United States as a whole is probably greater, since its general urban development is less than that of New York. It seems fair therefore to estimate that one-third of the 80,229 Girl Scouts reported in 1914 are to be found in communities of the size under consideration. This results in the estimate of 26,000 rural Girl Scouts quoted in the text. The Camp Fire Girls have no separate rural department, no recognition of any difference in rural work in their formal reports, no statistics, and no special study made by the agency of its rural work as such. (Interview with National Executives, July 25, 1924.) The organization claims to be particularly strong in smaller cities and towns and in a number of states such as Iowa, Nebraska and Colorado, which have few cities. Under these conditions a considerable proportion of the Camp Fire membership of 160,000 girls (Annual Report, 1923, p. 13) must be rural, but in view of the lack of evidence the estimate of the text (25,000) may be rather wide of the mark. But the relatively small contribution of this organization to the total rural membership of the agencies does not greatly affect the result one way or the other. The membership of about 600,000 boys and girls in the Junior Extension Clubs of the United States and State Extension Services is based upon direct reports of the United States De- partment of Agriculture for 1922 (Department Circular 312, 1924, p. 1). APPENDIX V METHODOLOGY 1, THE TERRITORIAL SAMPLE The investigation used the familiar method of studying a social situation by means of an adequate and representative territorial sampling of the facts. The fifty-three counties studied (for list, see Table I) consti- tute only 1.7 per cent. of the counties of the United States, and include only 4.1 per cent. of the population. This is enough, however, to reveal typical facts and to establish trends. BASIS OF SELECTION The counties were chosen in the following manner. Each co- operating agency was asked to indicate an approximately equal number of counties in which their work showed “good,” “fair,” and “poor” results, respectively. From this list a selection was made so as to give a reasonable regional balance, to reflect the influence of the more marked economic and agricultural provinces, and also to represent all degrees of occupancy by the agencies. CONSEQUENCE OF DUAL REQUIREMENT In order to constitute a good sample, the territory chosen had not only to be a fair cross-section of the United States, but it had also fairly to represent the actual distribution of the work of the agencies which is not equally diffused throughout the area of the nation. Consequently the sample could not be equally satisfac- tory from both standpoints and a certain compromise was in- evitable. ACTUAL CHARACTERISTICS OF THE GROSS SAMPLE While the counties chosen revealed a fair sample of the popu- lation of the United States by race and nationality, it turned out to be one-sided in several ens 244 HOW SHALL COUNTRY YOUTH BE SERVED? It included a disproportionate number of counties with declin- ing rural population. The average farm value of the counties studied was one-third beyond that of the United States as a whole. There was a relatively less rural and more urban population than the average, and much of the population classified as rural was really suburban. The primary cause of these one-sidednesses in the sample was the fact that the agencies have disproportionately cultivated rich counties, many of them lying near cities. The total sample was fairly typical of the areas in which the agencies are working, but was less satisfactory as a really rural cross-section of the nation. However, the twenty-nine strictly rural counties, considered by themselves, constitute a very good net cross-section of rural United States. There is no reason to believe that any other selection of an equal number of counties would be more repre- sentative of the nation-wide work of the agencies. 2. STATISTICAL TREATMENT No elaborate statistical methods were followed. The data as secured through the schedules were tabulated and summarized in ninety tables throughout the text, generally under self-explana- tory headings. CORRELATIONS Besides repeated quantitative statements showing how large a fraction of the total comparable population was represented by the sample in its various aspects, and the recurrent comparison of agency with agency, the following correlations were most fre- quently used: (1) type of organization and supervision; (2) size of community; (3) type of community including types of dis- tribution of population, urban and suburban vs. rural communi- ties, and the degree of social development of communities; (4) number of agencies at work and specific combinations and dupli- cations. In the tables these categories were applied to the data from numerous points of view to determine what difference their pres- ence or absence made. A correlation attempted but found not significant was with the degree of wealth of the territorial unit. It appeared that the support of the agencies generally is so little diffused and so much a matter of the backing of a few individuals that differences in general wealth had little to do with general results. 1 Tables XVIII and XIX. APPENDIX V 245 3. HEADQUARTERS INFORMATION VS. FIELD DATA While few agencies were able to furnish much strictly com- parable headquarters information, such as could be secured was tabulated for the points covered. The results showed striking agreement and tend to confirm the reliability of both sources of information. 4. TESTIMONY The verbatim testimony of representative citizens was trans- ferred from the schedules and field notes to sheets classified ac- cording to the ostensible subjects to which the testimony related. It was then carefully organized under simple categories, care being taken not to force meanings upon it beyond what were really there. The frequency of judgments favorable and unfavorable con- cerning the general value of the respective agencies, and the degree of satisfactoriness of their workers and finances, were then counted and interpreted in the light of the investigator’s first-hand impressions. Where possible the judgments were traced to their occupa- tional source, and the points of view of participants and non- participants and of witnesses representing different vocations were noted. Nothing is claimed for this technique beyond a systematic and conservative sifting of the testimony. The implicit philosophy of human development and of rural life, which entered into the point of view of the study, is con- fessed in the final sections, and is distinguished from conclusions which appear to emerge directly from the facts. The final con- structive suggestions are based upon the total results of the study and are believed to constitute well-considered hypotheses to be proved or disproved by further experiment. APppPENDIx VI RELATION TO PREVIOUS AND PARALLED S DULDLES OR) GRUIRALSA GING Tis The present study may be regarded as a phase of investigation incident to the efforts of agencies of rural welfare to redefine and adjust their work after the abnormal World War expansion. Although there is no formal connection between it and previous investigations in the same held, it has a certain historic continuity with earlier efforts. During the two and one- chalet years following 1918, a large group of national agencies doing rural social work undertook a co- operative permanent council. A formulation of general problems and methods of rural work, an outlined statement of the program of each important agency, and a partial sketch of a proposed manual of rural social work were reported to the second National Country Life Association meeting in 1919 and published in its proceedings. A second conference of the agencies took action expressing dissatisfaction with the outlined statement of the work of national agencies just referred to because of its indefinite and blanket char- acter. It referred the former report “back to the agencies for revision on the basis of present organization and method including more definite statements of means and methods employed on a strictly rural basis by those bodies serving both urban and rural communities.” It also voted “that agencies be requested to indi- cate the definite territory which they occupied as of date of March SLAIOIO” The National Council of Social Agencies Doing Rural Work (affiliated with the American Country Life Association), which grew out of this effort, has now in preparation a directory and a statement of rural program covering all types of agencies. The present study was historically coincident with several notable efforts of the major agencies to reéxamine their rural work for themselves. The Young Men’s Christian Association, for example, had three commissions investigating its rural work in various phases during 1924. The Young Women’s Christian Association has secured a ese ete from Mr. Henry Ford for APPENDIX VI 247 rural experimental work to cover a period of three years, and is engaged in redefining its problems and setting up its methods of investigation. Other agencies have not so completely identified, nor adminis- tratively separated, their rural work. They are nevertheless in- creasingly recognizing its importance and its special problems. For a second time, the Boy Scouts of America have appointed a commission to report on rural work. The Girl Scouts have re- cently issued for New York State the first report in which their rural work is statistically segregated. AppenpiIx VII STATISTICS OF RURAL WORK OF THREE NATIONAL AGENCIES ORGANIZED ASSOCIATIONS OF THE YOUNG WOMEN’S CHRISTIAN ASSOCIATION, 1923 * CouNTY OR COMPARABLE DISTRICT Number of State and County Communities Connecticut Ptareiord VC OUnLy ) Saeae a. 23 Delaware . Northern) District e:.ce cess 11 Maine MW OPKACountys (Loge yale enter 13 Massachusetts Western Massachusetts District 14 New Jersey Burlington County) +... eeeene 25 New York Chautauqua County .......... 26 (sreene (COunty “easiest sGin ee 4 Stole | Comnty ye, wa sant see ents WZ Vermont Five Districts under Vermont Courieil Ree ena vous cee West Virginia Payette County ivi cies acs aeiele 18 Florida Hinellas WWOunty a, a acon 10 WoOliubiay County ue Kuga ase 8 Kentucky Harlan Gountven sae var kes oA South Carolina ppattanbirey Gounty ye... 5 ton. 11 Members Junior Adult 300 200 264 Vola! 200 686 218 58 453 2,105 650 504 150 50 275 75 1,500 7 266 300 175 225 147 132 147 132 “ Data from the Rural Communities Department, Y. W. C. A. +: Total: 248 Budget $3,300.00 3,190.00 3,302.31 2,800.00 7,306.32 9,086.34 1,000.00 3,300.00 5,000.00 3,000.00 5,420.00 6,000.00 3,800.00 4,000.00 APPENDIX VII ORGANIZED ASSOCIATIONS OF THE YOUNG WOMEN’S CHRISTIAN ASSOCIATION, 1923 (Continued) CoUNTY OR COMPARABLE DISTRICT State and County Towa Cherokee County .......... Brana COONEY 5 onde 8 4s co stri PROCS Ws, 5. van s's's vs be Michigan Hillsdale County Wentord County. i.4...:23 Minnesota Goodhue County (1922) ... Mower County (1922) ..... Ohio Van Wert County ........ Clark County South Dakota Beadle County Brookings County ......... Oklahoma N. E. Oklahoma District .... Texas Galveston District (1922) .... Rio Grande Valley District .. Kansas McPherson County (1922) ... Nebraska Aare COIINICY Hy bss ldak ss 458 Adams County e@ovreereee eee California Pmiparial County io. ce%. o's Tulare County Washington EECA COUNEV nc. sy ees oes ® Total. oe eee eesee eevee srer eee eee 249 Budget $3,352.00 2,658.00 2,843.00 3,262.00 4,711.00 6,000.00 4,000.00 eevee ee 3,000.00 ¥ 33,702.00 8,003.94 Number of Members Communities Junior Adult alt oa 274 189 Bee 2a 363 eae 411 95 haid he 234 276 weg s. 170 428 TER BA | 87 269 Te ded | 150 50 a eG 168 596 aa BS: 273 10 Vea: 250 250 SEN 8 (No further information) 7 725 400 6 120 100 a 850 * 10 111 250 ae 4 398 500 re) 421 559 Paty st G 233 440 Lcehet 431 304 ? Including a small city association under the Rural Communities Department. 250 APPENDIX VII YOUNG MEN’S CHRISTIAN ASSOCIATION COUNTY ORGANIZATIONS, 1923 * % me Groups Membership ees . : = 5 3 = “ z a 3 = ee Noe S aes 3 3S S State and County 2O G 5 = aS = 9 Ww x California Fresno ¢eiva ah. 13 2 28 495 wie 495 495 75 Humboldt) 34 2:40. e's 2 15 420 se 420 420 24 Kaneohe eek 13 1 22 325 45 An 45 45 Los Angeles, Central District. 6 1 13 So oe 332 364 364 Orange het es 14 5 Seay oo 65 720 785 355 San Bernardino... 6 1 26 664 ATR 664 664 Santa) Clara aimsu. 10 1 34 464 125 339 464 125 San ierO tana. . s 5 1 4 65 20 45 65 30 Stavisiausi ies asco 8 1 5 118 100 200 300 200 WY uba-outter ssc.) 5 1 5 125 Mee 125 125 10 Connecticut Pairheld sis awa, 25 1 14 261 200 261 461 200 Hartiordvis. nek 23 3 31 739 830 444 1,274 Jaa TATCOMO eon ven ee 14 1 17 177, 83 139 222 Middlesex ........ 12 1 10 144 79 109 188 New Haven ...... 6 1 14 190 300 190 490 273 New London ..... 8 1 8 123 123 123 TT OllAnG ie. ce oie ct 13 1 17 251 170 197 367 283 Windham scien 5 13 1 16 193 128 144 Ze Florida ranean es Ocstee 5 Z 9 131 27 27 26 ral Pept nat Ae ily ae 7 a ee 90 90 80 Volusta tater an 14 3 16 200 13 47 60 Illinois DWP are esas seas 7 1 9 197 150 A 271 271 Indiana INGDle thee io soa cine 8 1 16 310 60 60 Iowa ? Black (Hawk es... 13 1 Gs. 325 165 ao 165 Buena Vista ..... 8 1 17 250 75 250 325 325 Calhoun. eee Ale 9 1 18 243 40 203 243 150 Madison. us vars 8 | 8 247 43 247 290 43 Marion) faite ales 7. 1 13 Sef 265 361 626 228 Kansas McPherson ...-¢... 10 1 13 270 ae 270 270 er raten. Gitte ok cee 1 -, 4 93 fen 93 93 150 Kentucky Bourbon reas tes isos’. 1 7 150 63 157 220 202 Maine Cumberland. ...:... 17 1 9 128 he’. 128 128 25 * Year Book and Official Roster 1928, Young Men’s Christian Associations of North America. APPENDIX VII 251 YOUNG MEN’S CHRISTIAN ASSOCIATION COUNTY ORGANIZATIONS, 1923 (Continued) Roce o8 Groups Membership SE a tes SE ‘= 3S u oat & | : Sin. ~ = S s =s BS he et S S 3 in State and County 2G HO = wo a gQ x Massachusetts Plvnontir ai. o., 18 1 14 186 hy 186 186 Michigan IRE ae ASAT celta x 9 1 23 2 15 70 85 PBC AIG 9 ok eed oss 6 4 1 i 70 50 50 50 POE ey Pk we tobedgs 6 1 J ie. 25 pAS 25 juiyingstoty 24. <3. 4 1 6 155 120 100 220 165 Momealim 2c... +s 7 1 8 137 op: 137 137 SORIA i cache cts we 19 Z 2 480 150 400 550 SOth awa teu jeu. 6 1 15 Whee 135 aif Ys 75 SB Wt LT Re Sg a 5 2 16 186 10 176 186 80 Missouri MN MSHOTAWS PAs 5 .0's 4 9 1 5 122 24 ae 46 24 Nebraska Ur a Bg WO aon CRA A 6 1 10 156 350 200 550 oh metrersen 6. o. 6 ho cs 8 1 6 160 350 160 510 350 Ecorse bititt wy . a. 1 1 10 165 tee 165 165 206 New Hampshire Cheshite ab’. ose. a) 14 1 14 185 20 165 185 Rockingham ...... 27 1 9 183 hey 183 183 Statord Va Sb cals 14 1 19 zie 645 231 876 Sulligan «ue e) ste 9 2 9 189 61 72 133 New Jersey Meter Leis dio o 25 2 25 624 815 PACT AY Ga Berkootot, fis. s+ 2. a Z 45 671 hn 311 31] @oresti a 1 we ee 16 Z 31 734 216 518 734 Gloucester ........ Z1 2 SV PPA WAAL easy h 250s PLS) Hunterdon ....... 11 2 25 972 121 Riereee nye sen es 10 1 16 278 556 278 834 Moamouth .. 6:55 11 1 20 273 144 211 goo SHCITIEE SEU U.)sina oss» é 20 5 23 395 225 290 515 SitRRe a ver BSR 9 1 10 240 50 140 190 New York Aihleshaty = Aes. 8 1 8 283 306 py 306 134 Chantauttia. aio... 13 1 15 360 hp 360 360 aby Herkiiner) 6... ..'.- 10 1 6 140 Bee 140 140 140 NATE OP a Ges caie'd 8 6 1 8 75 DR 75 75 uy Nassau-Suffolk ... 26 6 aN 194 5 199 129 Oneida. eran nek 3 1 120 80 200 200 Gir Atees is ceo es 7 1 12 265 35 245 280 iy PEUDETI: Oise nae 08s 6 1 9 216 ante 216 216 150 Westchester ...... 3h 2 2 AY 40 68 108 at. AV GOT) ceo «= 7 i 6 210 Ment 210 210 100 252 APPENDIX VII YOUNG MEN’S CHRISTIAN ASSOCIATION COUNTY ORGANIZATIONS, 1923 (Continued) que ; os Groups Membership $3 Be . oak ee aS 2 % 3 2 BS Say hse mutt ele Stateand County 26 GO & SSB = gm & % North Dakota Barnesiss ssa weke ps 7 1 11 116 116 116 Ohio Hamilton iis! ts s's 16 1 21 208 82 253 335 312 Laker west eet. 7 1 9 168 78 138 216 Mediria'i),s tatsculec 11 1 14 316 140 316 456 Montgomery ..... iS 1 18 126 54 72 126 126 Portage saciey, eas ak 14 1 15 308 16 180 196 167 Starkiesetitie sess 5 1 5 65 90 145 235 235 Suri ee cet bees 10 1 13 185 125 125 45 Wryandots 8 a.ioei 7 1 8 120 40 120 160 110 Oregon Larson yet ieee 4 1 4 77 50 77 Vf Marion Ssin. oes 10 1 18 358 90 358 448 South Carolina Florence.) save... 9 1 9 191 283 tk 283 431 EAS eats te Uhre 8 1 15 eit 248 162 410 274 Texas ATIPelinaly ewes vers 4 1 1 Ze 87 18 105 ale Parison Ske aca as is 1 6 85 ay 85 85 22 ETAL wan etl et 10 1 9 170 oat 170 170 RY: Pinta neshaa i cae 20 1 20 516 87 429 516 150 Vermont Windsor S608 oes ie 15 1 ay ca 250 Sag 250 250 Washington Pierce. 2 ssa. 6 1 12 250 175 225 400 225 Wisconsin ALTON Uke hoe en 3 4 61 72 54 126 120 Dodwesig ors ioe as 6 1 8 170 12 12 i ta on Ree 7 ABN byt 13 1 17 a7 50 50 Wralwortitin tenes ee 15 1 26 400 400 400 10 CANADA Ontario SINCOE NS Gk able ce 4 1 25 275 150 225 375 VV entworth fo. fenne 1 24 250 SE 250 250 Prince Edward Island Prince Ueae wae ik fx! 1 36 554 Pas 440 765 Re APPENDIX VII 253 BOY SCOUT COUNTY COUNCILS AND COUNCILS IN TOWNS OF LESS THAN 10,000 THIRTEENTH ANNUAL REPORT OF THE Boy Scouts oF AMERICA, 1924 Councils in Towns Ist Class County of Less Than oo i=) S New England = Beane 2925 ..' 1 Massachusetts . 4 Middle Atlantic New York... ./ 12 New Jersey ... 4 Pennsylvania .. 8 Ber Ete 9 LCi Mea Cee Z AUINOIN bees 3s Z Riivhigan 2 os). Z Wisconsin ..... West No. Central Minnesota .... 1 BGR a ok ae oe 1 Missouri's oa’. < 2 South Dakota . Nebraska ..... iW Weasieas yo 2. 1 Southern EP WINiIa hice. 1 North Carolina. 1 South Carolina. 1 ceorgia . S002 2 Bioraiae sss. 2 Kentucky ..... 1 Tennessee .... 1 Waapsina 23s. s 1 VAEREUSAS. c.5 5s Oklsahoma..... 8 Ou sea 3)''s 4 Mountain TOT TARA sy es to 4 TAT a hs ace Z Wyoming ..... 1 Coloradg. cre. 1 PCa b at 0: ea 2 Estalte tie sect ks 2 Pacific Washington ... 1 CIPO O OY ody canes 1 California’ .... 14 Councils Councils 10,000 Total % % i ee WE WH OK WS HO Se See ee SS a) he aes Se S 74-80, go- 92, 96, 100, 103, III, 117, 130, 134, 147, 154, 192, 223, 238, 240, 246 Group organization, importance of, 180 Handicaps, rural, 177 Headquarters information vs. field data, 244 Tat -¥, Gl, G4;3191 Incorporated places, of, 45 Indigenous agencies, attitude of leaders of, 130 Idealism, assimilation of religious and secular, 212 Indigenous vs. national agencies, 185 Influence, continuity of, 182 occupancy Joint executives, 226 Junior Extension Clubs, 30, 33, 34, 36, 64, 134, 222 Kiwanis, 65, 87, 231 Lapsed local organizations, 65 Leaders, 86 attitude of, of indigenous agen- cies, 130 observed types of, 106 volunteer group, 95 257 Leadership, as organized by the agencies, 94 lack of efficient, 93 Living units, age of, 68 Local committees, 94 Local councils of youth, 227 Local territorial organization, 40 Major issues, 187 Meeting places, 85 Members, in sample territory, 34 Membership, estimates of, 240 Men’s service clubs, 87 Methodology, 242 Methods, of codperation, 134 Methods in financing and their shortcomings, 120 National agencies, doing philan- thropic work, 25 relations between, 132 vs. indigenous agencies, 185 Naturalization, advantages from point of view of, 228 definition of, 199 further aspects of, 201 incomplete, explained, 200 unsolved issues, 202 summary, 204 Non-social development, results of, 181 Occupancy, advantages from point of view iice7, incorporated places, 45 non-incorporated places, 46 total, of communities, 46 of incorporated places, 45 relation of intensive to long- range, 194 through intensive organization, 188 258 Operation of agencies, 38-50 Opinion of work, favorable, 157 unfavorable, 161 Organization (s), experiments in cooperative ter- ritorial, 225 experiments in intensive, 220 farmers’, 185 finances of territorial, 118 forms of, 40 frequency and distribution of types of, 41 history of local, 66 importance and authority, 176 importance of group, 180 lapsed local, 65 local territorial, 40 occupancy through 193 origins of county, 42 property of county, 87 relation of agencies to commu- nity, 84 relations of organized groups to local parent, 222 unequal diffusion of, 52 Origins, of promotional organiza- tions, 65 Parent organizations, relations of organized groups to local, 222 Philosophy, lack of a clear-cut, 183 Professional supervisors, func- tions of executives as, 108 Program (s), a unified, 226 actual vs. advertised, 143 content of local, 144 the common core of variant, 145 Promotion, long range, present methods of, 190 proposed long-range, 199 intensive, | * HOW SHALL COUNTRY YOUTH BE SERVED? Property of county organizations, 87 Public opinion of workers, 107 Qualified approval, 131 Reactions, of communities, 127 Relationships, details of proposed, 231 environmental and _ cultural, 70 Religious idealism, assimilation Otzi2 Report, position of the, 173 Resources, rural, 178 Rotary Club, 43, 65, 87, 231 Rural, church, 183 compensations and_ resources, 178 extent of work, 31 handicaps, 177 school, 184 Sample territory, members in, 32 what it proves, 33 School, the rural, 184 Secretary, how much can one do, IIO Secretary, community, 221 Sectarianism, how avoid, in spon- sorship, 88 Secular idealism, 212 Segregation of suburban areas, 188 Special constituencies, 89 Sponsorship, 86 Statistical treatment, 243 Statistics, as aid to agencies, 73 Suburban areas, segregation of, 188 Supervision, effects of, 71 intensive, 104, 196 Support, the issue of financial, 195 INDEX Tables, illustrative, see table of contents Territorial committees, 97 Territorial finance, facts of, 118 Territorial organization, experi- ments in cooperative, 225 Testimony, 244 Time given to volunteer service, 97 Timeliness, special, 229 Towns, starting work with, 51 Types, observed, of leaders, 106 Value, of work, 155 elements of, recognized, 156 Volunteer group leaders, age of, Volunteer service, time given to, 96 War Work councils, 43 Women’s clubs, 65 259 Work, the, is it worth while, 155 Workers, public opinion of, 107 Young Men’s Christian Associa- tion, 25, 27, 31, 32, 39, 42, 43, 45, 46, 49, 50, 51, 64, 65, 69, 71; 74-80, 84-87, 90-92, 96, 100-103, 105, 106-108, IIo, II4-117, 119, 124-126, 1209, 130, 134, I41, 143-147, 151, 152, 156, 157; 162, 165, Igo, 195; 202, (208, 201,223." ea5) 226, 231, 238, 240, 245 Young Women’s Christian Asso- Ciation,<25 26.40. 32, 40.42, 43, 45, 49, 49, 50, 53, 64, 65, 69, 71, 74-80, 84, 85, 87, go- 92, 96, 100-103, 106, 108, II0, II4-I17, 119, 124-126, 129, 130, I4I, 145-147, 153, 156, 157, 160, 163, 165, 190, 195, 208/211, 212) 229,225 neaks 238, 240, 245 : : ‘ ' 1) Mi ra ih 14 rea 31 Wh ) i 2 ee ve af ih ih, ray wy ME i . ay we ae P \ ar N a Aen me a np eaves ‘ ed ‘ +f Ahn paey a a ify "se a nf 4 5 ut ‘ ¥| pia iM » ‘ way _ Aa ale ; , Vida ae isi a hae AN) cant I < RT ibis IL yay ie iy iy ahve : . ba? vite 4 ly ( \ 17 Lf ! ae. i 4 1 tbls) #1 4 ai. DERDERIAN) AR, be OER ie ande 4 AS a & ‘ ‘ Py Baie: | neh ln Panny 37% cra ar gest ey Uy ae y's Ye ; eri ‘ Pee | ae oe wr ie re ee A ee as dy 1) ; ain : ga IN AB Low a4 Rr 4a t i . D 7 vr #, Ronee wha: 58 Pray Oras We A teh ' a PL j PAR f ‘ ' } ) ie i F Pan uP) 4d ie AN) may ‘ i] . « ~ 147 hs i iw) oer vi ay J \ ’ Pdi ar he i A A Oa EF - hy RAG L¥, iy NT teds * 4h b ti ay Mer , Oh o , Sie ae I a us ein h V; oh) * ‘ 4D a on | nae ifr Th, . TA ty { i. i‘ Ae. ‘ aN ° ; | 7 . ; Ol at ig oi A isfy ut 14! Tk ‘ 1 ' 4 ¥ p i? '” eure A 4, 7 in Pun Aa ae fy) yan i 7 L) J AY ‘ ; nf “ AHN At ty shy ‘ Se )* yea AP ' ry ‘ y a ‘ a 43% J iy : ae i ’ Fal , j "i Givi i Fall a d vA al +4 Sok. ' q iJ i Oye fa ’ ? x ‘ ‘| i \ 7h y ] gs atuh j ‘ 2 ; Ps ve } fi ‘ i a ee ie : } i Shey Wiehe erat . r , ‘ ‘ i ‘ 4 A | hy ’ {4 ' j La a i; a 1 hi 7 ‘ . Lx) 4 Bath d ey vy i ‘Pal j ” » gs ate Gy) j i ‘ ' hs: F j : 4 tone a i a“ ts : my Wh ¢ 4 ys i r | ; wi Vinee Ay ee i! ‘ yi { J 4 Fat , 4 1} } Vig 1 j ¥ Ai 7 iJ Me ‘+ a tes j . ' «i ' ard ¥ vk Wi Bie AL ! ; i E. | 7 “¥ } "4 fie ah in ; 7 id " AYU e ii ia 5 ay ] SURNAM bated a | Wh "ae _ : “ye etn ¥ *) i , \ Pad ‘ e “« pay y 1 ‘ , § ( \y Na pe at yr ia ‘ Ow AG | aes 5s hi bas ' i i) j ' Bes, oy f 2 i " ay AOL awa i, re) " i 1 ‘J ‘ \ ' } ga’ s ‘ 1 "1 { Ty a H Boat) ‘ : ‘ ’ Ke, PUA A a it 1 ' ‘ } ‘ Pe | } : eal } pal ; ' AOL an AN i t 4 t ‘ j f Hoy f r ae hw J ‘ ’ Pi ; r : ‘ : ; r } i F I \ ¢ ° { . jg, 4 ( 1 He tes vile nie Al ? f ‘ { : pet “ae i : af J / Viger . } i ‘A t MON rer oy: t : } F ; toh why at ' hy RS ee A il? rie ? : : ¥ I ha Vik a } i oh ; Wa h d ‘ A i . My 4 | ba Fy 4 i 7 te ) ; Phi ( 4 | : , : “ . . Mov ai . oes ‘ ‘ ¥ j ‘ f i i ‘ ' J i | : ' Ok , ; r" ay pail i 7 4 ‘ af ; byl i ‘, dgy - 1d, J / i Lia : ’ ne ’ hy 4 e i‘ F] 4 fh J F fi oy fae? jin te iy i ; r Pr) tons —/ ALY se hk ‘i y , « | ‘f Prince I | | 1658 it Date Due - iii i m 3 v i, iit maa aa vy es ety ¥ Ay Ae nats bap pate aL) tf pe ete a wee La Da lynaiads = 4 f 4 fe eh UPS nae pret 2 Pt st sort 2 Ae at tt