Report of Study of Possibilities of Employment of Handicapped Persons in Minneapolis Minnesota A Report of Methods Followed in Making the Investigation and of the Essential General Findings of the Survey June, 1930 UNITED STATES GOVERNMENT PRINTING OFFICE WASHINGTON: 1930 e by the Superintendent of Documents, Washington, D. C. Price 15 centg 9f 3/ 371 .^ 2 ; FEDERAL BOARD FOR VOCATIONAL EDUCATION MEMBERS James J. Davis, Chairman Secretary of Labor Robert P. Lamont, Edward T. Franks, Vice Chairman^ Secretary of Commerce. Manufacture and Commerce. Arthur M. Hyde, Perry W. Reeves, Secretary of Agriculture. Labor. W. John Cooper, Claude M. Henry, Commissioner of Education. Agriculture. John S. Shaw, Secretary and Chief Clerk EXECUTIVE STAFF J. C. Wright, Director Charles R, Allen, Editor and Educational Consultant VOCATIONAL EDUCATION DIVISION C. H. Lane, Chief Agricultural Education Service. Adelaide S. Baylor, Chief, Home Economics Education Service. Frank Cushman, Chief, Trade and Industrial Education Service. Earl W. Barnhart, Chief, Commercial Education Service. VOCATIONAL REHABILITATION DIVISION John Aubel Kratz, Chief Vocational Rehabilitation Service 754855 CONTENTS Page Foreword_ ix Part I—INTRODUCTION Origin of the survey_ 1 Cooperation by the Federal Board for Vocational Education- 2 Cooperation by Dunwoody Institute- 2 Cooperation by the Minneapolis Society for the Blind- 2 Characteristics of area covered by the survey- 2 Scope of the survey_ 3 Part II—OBJECTIVES OF THE SURVEY General objectives_ 4 Type of survey used_ 4 Situation resulting from a survey_ 5 Elasticity in procedures_ 6 Qualifications of the survey group_ 6 Knowledge of local conditions by the survey group_ 6 Character of data_ 7 Checking the data_ 7 Interpretation of the data_ 7 Devices used_ 8 Part III—SCOPE OF THE SURVEY What the survey undertook to cover_ 9 1. Physical demands of the job_ 9 2. Relation of specific handicap to physical demands_ 10 3. Other necessary facts about the job_ 10 4. Kinds of concerns where the job is found_ 11 Part IV—ORGANIZATION, OPERATION, AND CONTROL OF THE SURVEY Organization of the survey_ 12 Operation of the survey_ 12 The skilled trades_ 13 Certain devices used in the survey_ 13 The universal checking sheet_ 13 Making contacts_ 16 Procedure in making contacts_ 17 Use of contact letter_ 17 Studying the jobs_ 20 The first check_ 21 Use of memorandum card_ 21 The skilled trades_ 23 Office occupations_ 23 Large commercial concerns_ 23 V VI CONTENTS Operation of the survey—Continued. Page Office procedures_ 23 Procedures used for type occupations or jobs_ 24 Final expert check_ 24 The case of the unit or single occupational establishment_ 25 Recording of data from check sheets and notes on permanent forms_ 25 Introduction_ 25 File No. 1_ 26 File No. 2_ 26 Use of files No. 1 and No. 2_ 31 File No. 2 necessary in all cases_ 31 Three possible procedures_-_ 32 The advantages of having two files_ 32 Summary_ 32 Controls used in the survey_ 33 Field control_ 33 Office control_ 33 The order of office control_ 34 The master control chart_ 35 The assignment check chart_ 37 The conference assignment chart_ 38 The special expert check record_ 38 Final summary check record_ 39 Part V—FINDINGS OF THE SURVEY General findings_ 42 Many job opportunities_ 42 Lack of placement of disabled on business basis_ 42 Management’s past indifference to scientific placement of the disabled. 42 Need for placement bureau for all handicapped_ 43 Opinion of groups on employment possibilities of various handicaps. 43 Interest of industry in the employment of the handica-pped_ 43 Cooperative attitude by management_ 43 Use of artificial appliances_ 44 Jobs requiring contact vdth the public_ 44 The effect of serious handicap_ 44 Pathological cases_ 44 Eye disabilities_ 45 Relation of specific handicaps to range of employment possibilities— 45 Effects of the degree of the handicaps_ 45 Adjustment of working conditions_ 46 Specialized jobs_ 46 Highly specialized jobs_ 46 Results of the survey as affecting policies and procedures in rehabilitation work_ 46 Retraining agencies_ 47 Some general rehabilitation principles- 48 Efficient operating conditions_ 48 Certain difficult problems_ 48 1. Conserving their own employees_ 49 2. Foreign management and remote control- 49 3. “Too much trouble to employ handicapped people”- 49 4. Creating an increased insurance risk- 50 5. Creating a second injury risk- 50 CONTENTS VII Results of the survey as afifecting policies and procedures in rehabilitation work—Continued. Certain difficult problems—Continued. Page 6. The effect of group insurance_ 50 7. The effect of medical examination_ 51 8. Increasing production costs_ 51 9. The effect of the charity appeal_ 51 Conclusions and recommendations_ 51 Characteristics of the recommended bureau_ 53 Organization and personnel_ 53 Estimated cost_ 54 The need for keeping up data_ 54 Part VI—SAMPLE JOB FINDINGS OF SURVEY APPENDIXES A. Staff of survey_ 71 B. Cooperating agencies and individuals_ 72 C. The case of the skilled trades_ 73 D. Employment possibilities for handicapped people_ 74 Table 1. Number of employment possibilities for specific handi¬ caps out of 2,515 jobs studied in Minneapolis_ 74 2. Distribution of employment possibilities for specific handi¬ caps as between regular and seasonal employment_ 75 3. Distribution of possibilities of employment for handi¬ capped people as between general or specialized jobs_ 76 4. Distribution of employment possibilities for specific handi¬ caps as between novice jobs, and jobs requiring special training or previous experience, or both_ 77 5. Number of jobs in fields of employment where employment possibilities were found for specific handicaps_ 78 Publications of the Federal Board for Vocational Education relating to vocational rehabilitation_ 80 FOREWORD This publication consists of a report of a study made in Minneap¬ olis, Minn., for the purpose of ascertaining the possibilities in that city for the employment of persons having specific physical disabili¬ ties. This report covers a description of the methods which were followed in making the investigation, and gives the essential general findings of the study. At the request of the Citizens^ Aid Society of Minneapolis, which sponsored the survey, the Federal Board for Vocational Education cooperated in the work. The procedures de¬ veloped and the results secured appear to have value for all public or private agencies that are engaged in the placement of disabled persons. J. C. Wright, Director. 113854^3a 2 IX / ’Ul (fS« V 1 ■ n j Digitized by the Internet Archive in 2018 with funding from University of Illinois Urbana-Champaign Alternates % https://archive.org/details/reportofstudyofpOOunit REPORT OF STUDY OF POSSIBILITIES OF EMPLOY¬ MENT OF HANDICAPPED PERSONS IN MINNEAPOLIS, MINN. Part I INTRODUCTION For some years it has been recognized that the individual who loses his earning power because of a physical handicap constitutes a major social as well as an economic problem. It is now generally conceded that it is poor social economy to permit the existence of a group of dependents who through some constructive program may be returned to the ranks of productive workers. This principle was given national recognition through the passage by Congress in 1920 of the act providing for the promotion of voca¬ tional rehabilitation of persons disabled in industry or otherwise. Under this act the Federal Government cooperates with the States in fitting or refitting for remunerative employment those persons who become vocationally handicapped through physical disability arising from accident, disease, or congenital causes. At present, 44 of the States and the District of Columbia have rehabilitation legislation; of these all but two are actively engaged in the work. Under this nation-wide program, all types of disabled persons are being fitted for employment through physical reconstruction, vocational training, or other processes. The program for any individual is not complete until he has been established in suitable employment. ORIGIN OF THE SURVEY In addition to the State-Federal rehabilitation services, many private agencies throughout the country are providing a placement service for the physically disabled as a group. Some time ago a number of the social agencies in Minneapolis, Minn., took under consideration the desirability of establishing such a joint employment bureau. It was felt that, before a decision could be reached, the possibilities of employment for handicapped people in the com¬ munity should be learned. The facts obtained would serve, also, to equip the agency to carry on its work in an efficient manner, were such agency established. Believing in the validity of this plan, the Citizens Aid Society of Minneapolis, founded and endowed by Mr. George Henry Christian t 2 FEDERAL BOARD FOR VOCATIONAL EDUCATION to promote the welfare of the citizens of that community, appro¬ priated adequate funds for such a study; and authorized Dr. C. A. Prosser, director of William Hood Dunwoody Industrial Institute, to act as the representative of the society in the management of the work. They instructed him to secure, if possible, the cooperation of the Federal Board for Vocational Education, the Federal agency which is charged with the administration of the national civilian vocational rehabilitation act. COOPERATION BY THE FEDERAL BOARD FOR VOCATIONAL EDUCATION Cooperation by the board was given through the personal services of Dr. Charles R. Allen, editor and educational consultant to the board, and Mr. R. V. Billington, special agent. Doctor Allen gave valuable assistance in planning the organization and procedures of the survey and in the writing of the report. Mr. Billington was very helpful in developing the procedures and in making available a wide knowledge of the physical requirements of jobs, the limitations of specific handicaps, and the use of prosthetic appliances. Further cooperation by the Federal Board consisted in editing the manuscript and publishing this report. COOPERATION BY DUNWOODY INSTITUTE The cooperation by Dunwoody Institute consisted in providing without charge, quarters with janitor, telephone, and stenographic service, and for a period of three months a considerable part of the time of the director, many members of the faculty, and others con¬ nected with the school. COOPERATION BY THE MINNEAPOLIS SOCIETY FOR THE BLIND Independent of the general survey, but through the many contacts made and some use of the personnel developed by it, a special study was made of the opportunities for employment of the blind. The work was carried on in cooperation with the Minneapolis Society for the Blind. Many valuable data were secured from other cities as well as from Minneapolis. These are not made a part of this report; but they will be used to assist the society in its efforts to secure more em¬ ployments for the totally and partially blind in commercial concerns, in the society’s workshop, and in the home industry employments which the society operates and encourages. CHARACTERISTICS OF AREA COVERED BY THE SURVEY The general survey was confined to Minneapolis, which has a popu¬ lation of about 450,000. In such a community there are the usual public service occupations such as light and power, telegraph and tele¬ phone, and railway and traction service. In this city, however, there are relatively few large manufacturing concerns; there being only six in EMPLOYMENT OF HANDICAPPED PERSONS 3 the city employing over a thousand workers. Manufacturing is carried on ver}^ largely by small establishments making specialties or producing staple products on a small scale. As a financial and busi¬ ness center for the area north of Chicago and east of the Rocky Mountains, the city contains many commercial offices of considerable size. The character of the climate tends to accentuate seasonal occupations to a greater extent than would be true of a city located in a lower latitude. On the whole, it would not seem that Minneapolis offers many characteristics markedly different from those of any other American city haying diyersified industries. This being the case, it is assumed that the general results secured in this suryey are probably similar to those which would be secured in almost any other large American community. In cities haying practically unit manufacturing, howeyer, such as the textile communities of New England and the South, these characteristics would be modified. This would also probably be the case with respect to the modifying factors of conditions of race and climate. None the less, the procedures described in this bulletin could be used anywhere. Although this study is admittedly one of local conditions, it is belieyed that the information deyeloped as to the procedure and the results secured, ^yill be of yalue to any community in connection with the deyelopment of a program of placement for the physically handicapped. SCOPE OF THE SURVEY The suryey yras completed in fiye months at a cost of $4,542.72. One hundred twenty-one occupations, representing 2,515 jobs, were studied with regard to 28 specific disabilities. Therefore, 70,420 theoretical employment possibilities were considered. Of this num¬ ber, 28,573 jobs were found which offered possibilities of employment for persons wdth physical disabilities. Out of a total of 28,573 jobs which offered possibilities of employment for an indhddual haying one or more specific handicaps, 13,847 jobs were found which could be performed without reseryations, and 14,726 additional jobs were found which could be performed with reseryations. Part IT OBJECTIVES OF THE SURVEY GENERAL OBJECTIVES The principal objective of the survey reported upon in this bulletin was to ascertain opportunities for employment in the city of Minne¬ apolis of persons who are physically disabled. Specifically, the aim was to ascertain those jobs for which a person with a particular disa¬ bility would not be handicapped because of his disability. To put the matter another way, the purpose was to find those jobs in which persons with particular types of disabilities could engage on an “eco¬ nomic competitive basis’’; that is, could not only engage but could also perform as well as normal workers. It is well known that many handicapped persons are emplo 3 ^ed out of considerations which have little to do with the economic and efficiency elements in employment. Employers are known in many cases to “take care of their own.” The motive may arise out of philanthrophy, a desire to please influential friends of the worker, or a feeling of responsibility for the injured workman. This survey was concerned, however, only with economic considerations in the employ¬ ment of the disabled. It was realized that if the great bulk of handi¬ capped persons in any community are to be kept permanently employed, employment wdll have to be on an economic competitive basis. For this reason, the survey focused attention on the physical demands (activities, motions) of specific jobs, and analyzed them in relation to the ability of a person with a given handicap to meet them. In the last analysis, the philosophy behind this study was, simply stated, that any disabled person who can, despite his handicap, per¬ form a particular job as well as normal persons has a right to employ¬ ment; and, furthermore, if he can compete with the able-bodied in employment, he will secure and hold it. TYPE OF SURVEY USED Before the survey could be carried out it was necessary to determine answers to the following questions: 1. Is a placement bureau needed? 2. What facts should be secured to ascertain whether such bureau is needed? 3. What data would such bureau need in order to functiou efficiently? 4 EMPLOYMENT OF HANDICAPPED PERSONS 5 It was realized from the beginning that the securing of satisfactory answers to these questions would be contingent upon the kind of survey which would be made. It was obvious that such a survey as is sometimes called “academic” would not suit the purpose. This type of survey ordinarily uses the questionnaire or similar device to find out what has been done or what the current conditions are. Thus, the objective of such form of survey with respect to the employment of the disabled would be to discover the various jobs at which the disabled in a particular community are employed. While the findings of such a study would be to a limited extent helpful or suggestive, they would not of themselves be scientific, complete; or reliable. As was stated elsewhere, the disabled are frequently employed for reasons other than their ability to perform certain types of occupations efii- ciently. Again, there exist many occupations suitable to the dis¬ abled, at which such persons might not be found working. In other words, a picture of “what is” at any time is not necessarily “what might be”; and, in the case of employment of the disabled, the picture of what has been done in any American community would be of very little help in determining what could be done if scientific methods were followed in the placement of handicapped people. SITUATION RESULTING FROM A SURVEY If, in the conduct of a survey, experts from the outside are brought in, the usual outcome is a report with recommendation which is usually written after the survey group have departed from the community. Since opportunities for the employment of handicapped people frequently depend upon the removal of certain inhibiting factors, it seemed highly desirable that the survey should ascertain facts; and, as far as possible, educate persons or groups who control employment. It developed that this could be done best by making representatives of such groups parties to the survey. In the last analysis, the question of employment rests in the hands of the em¬ ployer or his representative. It was realized, therefore, that no matter how clearly it might be shown that certain jobs in any office or factory could be successfully performed by certain types of disabled persons on a competitive basis, if the management did not believe it to be true, the facts would be of little importance. Hence, it was believed that the agencies controlling employment should be made to realize the facts about employment possibilities; and that this could be done by securing their cooperation through direct personal contact and their participation in the survey. Naturally the conference method was used, and the process became also a matter of educating the employing concerns with regard to the scientific placement of handicapped workers. 6 FEDERAL BOARD FOR VOCATIONAL EDUCATION ELASTICITY IN PROCEDURES The very nature of the survey made it necessary to use flexible rather than rigid or uniform procedures. Any device which promised to secure accurate and reliable data was used in accordance with the requirements of particular conditions. In addition to the direct observation of jobs by experienced field agents, it was frequently found desirable to utilize several sources of information on the same job, or group of jobs, such as employers, employment managers, super¬ intendents, and foremen. In other cases, it was found best to secure initial information from some individual of high rank in a standard organization, such as a flour mill; and then have the data subsequently checked by others thoroughly familiar with the demands of type jobs in that occupation. QUALIFICATIONS OF THE SURVEY GROUP The group who made the survey consisted of individuals who were residents of Minneapolis and were familiar with its industries. Thus they were able to use contacts developed out of their experiences— an advantage which would not have been possessed by persons coming in from the outside. The two members of the staff of the Federal Board for Vocational Education were exceptions, but their services were practically confined to the organization and administration of the study. The following fundamental qualifications were required of the members of the survey staff: 1. They must have had successfid experience in some occupa¬ tion in which they had risen to a position of responsibility, or 2. They must have had some experience in the retraining and placement of handicapped persons. KNOWLEDGE OF LOCAL CONDITIONS BY THE SURVEY GROUP As has been said, the group who made the survey consisted of those whose understanding of the local conditions was both extensive and intimate. Had this not been the case, it is hardly an overstate¬ ment to say that the survey could not have been carried through in a satisfactory manner; for example, the making of contacts with local concerns would have offered almost insuperable difficulties. Almost without exception the group received complete cooperation from employers, foremen, and others. This not only made for effi¬ cient work by the field agents; but yielded, also, a body of invaluable information, opinions, and suggestions about occupations not other¬ wise to be obtained. Such local team play made the work most effective. EMPLOYMENT OF HANDICAPPED PERSONS 7 CHARACTER OF DATA The importance of objective or factual data should not be under¬ estimated; but in such a survey as described here, the securing of subjective information was most desirable. Objective data readily lend themselves to statistical treatment. Nevertheless, employment is not determined altogether by facts, for the attitude of the employer plays an important part. Many of the factors which influence this attitude are not objective in nature and are not capable of objective treatment. Hence, it was believed that the most accurate data would have to be based upon the pooled opinions of those who were directly concerned and thoroughly familiar with actual employment conditions. It seemed necessary, therefore, to face squarely the question of utilizing subjective data, as it was evident that if reliance were placed on objective data alone, certain objectives of the survey could not be successfully attained. CHECKING THE DATA In this survey it was possible to set up a series of checks by different individuals or groups of individuals especially qualified by experience to pass upon questions regarding the particular occupations studied. On the average, the data for each occupation studied was checked by at least eight different persons, each having different kinds of experiences and responsibilities. Briefly the procedure used was as follows: ' 1. Observation by survey agent of the employment possi¬ bilities for specific handicaps in the jobs of an occupation; 2. Recording of agents’ decisions; 3. Checking of agents’ decisions by responsible officials of the concern visited; 4. Further checking by representatives of other concerns in the same business; 5. Final checking by the office directing staff and others employed for the purpose. INTERPRETATION OF THE DATA In this survey the data were checked and interpreted by employers, foremen, and others, who were familiar with the problems of employ¬ ment; by experts in the use of artificial appliances; and, where neces¬ sary, by medical experts. At times when questions arose, it was feasible to return to the employers or foremen who had been the original source of information. Had this not been possible, the results of the survey would have been much less reliable. 113854—30-3 8 FEDERAL BOARD FOR VOCATIONAL EDUCATION DEVICES USED In place of questionnaires it was found desirable to utilize several devices. Of these the most important was a universal checking sheet. Another was the general control sheet. Special files and supple¬ mentary control devices were established. All are described in a following section. Part III SCOPE OF THE SURVEY It was decided before any field investigations were made to deter¬ mine the minimum scope of data that would be secured. The deter¬ mination was made in the light of the character of information it was felt would be needed by a bureau for the placement of the disabled. The following items were considered necessary: 1. Physical demands of the job. 2. The relation of certain standard handicaps to the physical demands of specific jobs. 3. Wage range of the job. 4. Novice, experience, or training requirements. 5. Seasonal or regular character of the job. 6. General or specialized character of the job. 7. Effect of sex on employment in the job. 8. The kind of concerns in which the job or group of specific jobs is carried on. Certain kinds of information were not sought in the survey, such as employment policies of specific plants, employment opportunities in specific plants, employers’ attitudes toward the handicapped, specific wages, training opportunities, lines of promotion, physical examination requirements, working conditions, and labor policies. Naturally, however, the field agents did secure a great deal of data of such nature. It should be noted that this information applied only to conditions in the particular concern studied, and would not apply to other concerns of which the one studied was a type. WHAT THE SURVEY UNDERTOOK TO COVER 1. Physical Demands of the Job. Practically every job requires a relationship between a machine or a tool and a worker. Thus the worker must be able to effect certain physical movements, exert certain degrees of strength, and exercise certain skills. For any given case, with the normal individual, these physical requirements are either known or are easily identified by well- known methods. Such requirements must be ascertained in the case of the disabled, because any physical handicap or pathological con¬ dition prevents the individual from exercising certain motions or applying certain degrees of strength which a nonhandicapped person might possess. Hence, it was necessary to ascertain or to know the physical requirements of each job studied in the survey. 9 10 FEDEflAL BOARD FOB VOCATIONAL EDUCATION 2. Relation of Specific Handicap to Physical Demands. Looking at the problem of employment from the standpoint of the individual, it is evident that any specific handicap, such as the loss of a hand or leg, reduces the ability of the individual to make all the movements or to apply all the various degrees of strength or of skill of which the normal individual would be capable. Consequently, the employability of the handicapped person on an economic basis de¬ pends on three possibilities: (1) The handicap may not interfere with his exercise of skills or making of movements required by the job; (2) through some form of substitution he may be able to perform all necessary processes of the job; (3) through the application of an artificial appliance his lost functions may be restored. As an example, a punch press operator on a foot trip press must have the use of both hands and one foot with which to trip the press. The loss of an eye does not constitute a handicap on this job; but the loss of a hand would practically bar a man from the job, unless the use of an artificial hand made possible his making the necessary movements and applying the necessary strength to perform the work. If the press were operated by a right foot trip, and he had lost his right foot he could not operate the machine unless he could trip it with an artificial right foot, or with his left foot if the machine had been rearranged so as to operate with a left trip. The skill, knowledge, experience, and kind of training required for a given job would obviously apply to the handicapped as well as to the normal person. Information on these points was not included in the survey. Such information is available, or can be easily secured by a placement officer. Therefore, the problem of the survey was not to study all the demands of a job, but only its employment possi¬ bilities for individuals suffering from specific handicaps. In general, the handicapped, except for their disabilities, present the same characteristics as do normal persons. All persons vary as to age, mental ability, capacity, schooling, experience, and person¬ ality. Demands of all jobs are exactly the same for the normal and the handicapped man. Consequently, it was not necessary in this survey to study the requirements of any job except those which were affected by the physical abilities of the handicapped. 3. Other Necessary Facts About the Job. In dealing with a handicapped person needing assistance in securing work, an employment officer would, as has been pointed out, first ask the question: What job or jobs can a man with this handicap do provided he has the other qualifications? There are at least five other questions about jobs, however, which would have to be answered: so the survey undertook to secure answers to the following: 1. What is the wage range? EMPLOYMENT OF HANDICAPPED PERSONS 11 2. Are novices broken in on the job or is previous experience or training, or both, required? 3. Is the job seasonal or regular? 4. Is the occupation (of which the job is a part) general or speciahzed in character? 5. Are males or females, or both employed on the job? The necessity for data secured through answering the above questions is obvious to the person who would do efficient placement work. 4. Kinds of Concerns Where the Job is Found. This information is needed by a placement officer in order that he may know where he can find employment for a handicapped man in a job after he decides the man could perform it successfully. There¬ fore, the survey covered the making of a card file describing in general the kinds of concerns in Minneapolis where specific jobs and occupations would be found. In addition, a card file was made up of all manufacturing firms in the city which are reported by the Minne¬ apolis Civic and Commerce Association, organized by type products, such as flour and furniture manufacturing, baking, foundries, and the like. Part IV ORGANIZATION, OPERATION, AND CONTROL OF THE SURVEY For convenience the description of the actual conduct of the survey is presented under three topics: (1) Organization; (2) operation; (3) control. ORGANIZATION OF THE SURVEY The personnel of the survey consisted of a director, a survey spe¬ cialist, a rehabilitation specialist, a chief clerk, a field staff, a clerical force, a disbursing officer, and certain cooperating individuals and agencies. As has been stated, the survey was conducted under the auspices of the Citizens Aid Society of Minneapolis, Minn. See Appendix A, page 71, for list of the personnel and Appendix B, page 72, for list of cooperating agencies. In this connection it is emphasized that the survey would have been practically impossible had there not been cooperation by the private agencies and individuals who gave freely of their time without charge. Too strong a statement can not , be made as to the value of their assistance which has been most highly appreciated. OPERATION OF THE SURVEY The first step in the survey was the establishment of a basis of preliminary information to be used as a point of departure. The Minneapolis Civic and Commerce Association furnished a list of practically all the individual establishments of the city. This list was broken down through a system of grouping the various industries and commercial establishments under classified headings. Each group represented from 1 to 50 employing concerns carrying on essen¬ tially the same type of work. Skilled trades were grouped as such, each trade being considered as a unit. Office work, as such, was treated in the same way. Large employment establishments were treated as units. Through this procedure, a list of approximately 121 distinct types of occupations w^as secured. In the case of the list furnished by the civic and commerce association, some one type of establishment was selected from each group on a particular basis. The most frequently used basis was the fact that contacts had already been established with a concern of such a character that it was easy to secure the cooperation of that particular company. In other cases the basis was the number of people employed, a large concern being chosen in preference to a small one. A third consideration was the accessibility of the plant. 12 EMPLOYMENT OF HANDICAPPED PERSONS 13 The Skilled Trades. In the case of the skilled trades, it was possible to secure adequate information either from members of the survey group or from coop¬ erating individuals so that it was not necessary to send field agents out to make studies of these trades. In this study of skilled trades many members of the faculty of Dunwoody Institute rendered great service which is gratefully acknowledged. See Appendix C, page 73, for list of those who assisted. The wide trade experience of those men and the extent of their industrial contacts made it comparatively easy to analyze the skilled trades in a rapid, reliable manner. Office occupations were studied by Mr. E. L. Berquist, of the American Business College and his faculty, to whom full credit is given. In the procedure followed, out of a total list of 121 occupations, 76 were type industrial concerns, 6 were building trades, 8 were specialty¬ manufacturing concerns, 1 was an office occupation, 12 were other commercial occupations, and 18 were miscellaneous occupations^ Certain Devices Used in the Survey. Certain special devices were used. Perhaps the most valuable of these was what came to be known as the “universal checking sheet. Since this sheet was the fundamental data sheet on which the whole survey was based, it is fully described. The Universal Checking Sheet. In order to secure uniform returns from the work of the field agents and to establish uniform limits in the scope of the study, there wfts worked out a checking sheet, a sample of which is shown on page 14. This “universal checking sheeC^ is simply an adaptation of the ordinary so-called “checkerboard’’ type of checking sheet by which vertical items on the left side are checked against horizontal items listed across the top. Each field agent carried copies of this sheet when visiting a plant. He entered in the upper right corner the name of the concern and the trade or occupation it carried on, or the product it produced. If there were a number of departments or divisions in the plant he used a sheet for each. The names of the pay-roll jobs in the department were written in the vertical columns across the top of the sheet. In order to identify the sheet for subsequent handling, the agent put the letters of his surname in the upper left corner and numbered consecutively all the sheets he used. Page 15 gives an illustration of the plan. It is a sample sheet, made out by Br as the tenth sheet filled out by him in the progress of the survey. 14 FEDERAL BOARD FOR VOCATIONAL EDUCATION Chart 1. —Sample of universal checking sheet SURVEY OF OCCUPATIONS FOR THE HANDICAPPED Company_ Trade_ Occupation_ Checked By By . By By 1 2 3 4 6 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26 27 28 29 20 31 32 33 34 35 Arm, right, off below elbow.... Arm, left, off below elbow. Arm, right, disabled.. Arm, left, disabled. Cardiac. Deafness, partial. Deafness, total. Deafmute. Hand, right, disabled. Hand, left, disabled.. Hand, right, mutilated. Hand, left, mutilated. Hernia. Leg, right, off below knee. Leg, left, off below knee.. Leg, right, off above knee. Leg, left, off above knee.. Leg, right, disabled. Leg, left, disabled. Legs, both, disabled. Legs, both, off below knee. Legs, both, off above knee. Legs, one shorter than the other. Tuberculosis, arrested, pulmo¬ nary. Varicose veins.. Vision, one eye. Arm, right, off above elbow_ Arm, left, off above elbow.. I 3 ' 4 ! i 6 I 7 9 10 11 12 13 14 15 I I EMPLOYMENT OF HANDICAPPED PERSONS 15 An examination of the following chart shows certain words or letters used as designating devices to express judgments regarding employment possibilities for a given handicap on a given job: coMj^MMv/LandiOLokes rrecpniri/ serial #m Sl^et #BrlO OF OCCVFA^IOJJS ^ 10 ! St N£ 'A acf.iiM-r/ofjPairy Hroducfs. o'Lakea WjrA M M > factory and Pockfng Division Creaaarj Co. -m. alSO Operate:Cofsterid, iai/ndry other empjoyees - auto trucker. a. .r ? rv- f're/non.watdiman, cnem/st ‘ ' /III '%z/z9 s-rBeni-Zakariasen-chemst / / / / io/2z/z9. ay^iss6Sf<^sdeman-F.L /, /^/^/ 10/20/29 ^^Wilbur Phillips-F.M h^//$ to/zi/29. j^yRankEnckson -Of. 1^1 10 / 22 / 29 . BrMc Guire-Supt. MMM/ m/m Ww/J'/ m/m/ V ifL^l t^l. / / / / /$7 / /Ik Jobs require framing. / / /v/ /^ / / AH others novice. / / m-ma/e Wr/W^ / / f-female Wii/ // ,i&s^i. m/i////i / M J 4 <5* 6 r a |p /O // /a. /3 /4 /£ / AKM-a-r- oe^e- a£i.ow£t.BOW no no no w P no no no no no no no Buffer Tesfinadone ASM^L.r~ OFF no no no no P no no no no no no no bu U S. Government 3 AMM-Mt:-£>ISABA^£.^ no no no no no no no no no no no no Inspectors « ARM'-LT.'- O/SABA^E^ no no no no no no no no no no no no 5- CABB/AO yes yes yes no no no no no no no no no No physical exam — DEArNBSS-A>AmriAL. lies yes yes yes yes yes yes yes yes yes yes yes /nation. 7 B&A^A/£S9 - 7‘O'rAL^ no yes yes yes no P no no no no no no no no no no AMS B/SFMJ-^F no P no no no no no no no no no no UBS- Born-oe-e- bbj-oi-'/ eivs.Mi. no P no no no no no no no no no no. BOy-H-OFF ASOk^'M no P no no no no no no no no no no AO -n/MCTHeA yes yes yes yes yes yes yes yes yes yes yes yes ruOEFCAJLa S/S - AO/OMSTMO FiAFKNM. no no no no no no no no no no no no No m food onckmg industries. AS. UAB/c-osM \/EJNS •^s yes yes no no no no no no no no no iK ViSIOIV-OrJC. BYB. yes yes yes yes yes yes yes yes yes yes yes yes ar. ^PM-nr.-Off ABov£ spBoyr no no no no no no no no no no no no A3 A£M- LT- 0£F PBOYB £IB0W no no no no no no no no no no no no &9 Wc-eklu wage X. f- >1- 9 V- *,5 ■a- -a- >n 4.^1 '5- 30 . \ 3/ /4 - Thumb and two finaets Offict ’ e •vp toy ees -8 ? S'-Thu mb and one fmaer Toh! entp/oitees-z&o. 33 C- Thumb and three fmctets 1 34s Dull seasons / ja /a- ■Nc VJ n ese d 'a// 1- ns cc me ai ''a fir. 1 1 < ss i Mar. ^ Apr 1 and egg chvisidn / ? tvshma. ■ no reduction , or “Yes” indicates that in the opinion of the agent, after observing the operations of the job and a conference with the fore¬ man, the job could be successfully performed by an individual with that^specific handicap even without the aid of an artificial appliance. 113854 — 30 —^ 16 FEDERAL BOARD FOR VOCATIONAL EDUCATION “N” or ‘‘No” indicates that the job could not be done by an individual having that specific handicap even with an artificial appliance. “P” (probably) means that the job could probably be successfully performed by an average individual with the aid of an artificial appliance. An inspection of the sample will show also that other letters were used to indicate “Yes, with reservations” regarding such disabilities as cardiac trouble, mutilated hands, hernia, varicose veins, and the like. In addition, the agent carried “supplementary information cards,” on which he wrote his reasons for the decision he made re¬ garding a particular job and a particular handicap. A filled-out sample of one of these cards follows: Sample of supplementary information card ^ Sheet No.—Zu 9 Occupation—Upholstered furniture manufacturing. Handicap—_ Job—1. juifts up to 80 pounds occasionally in piling frames. Carries frame or pulls them to and from bench. Standing job. Verbal orders and directions. Holds brush in one hand moves frame with other. Needs grip in both. Must stand all day and walk back and forth vdth frames. Foreman says he tried one man with leg off and while he could do work still could not do what a normal man would. 1 Numbers on left refer to list of standard handicaps as shown on universal checking sheet. Making Contacts. Working from a sheet described on page 35 each agent was assigned to the study of some industrial plant or of some occupation.^ In practically all cases, preliminary contact was made with the concern studied. These contacts were made easier through the fact that the director of the survey had already established contacts with the concerns selected for study. There was practically unanimous will¬ ingness to cooperate. Only in a few cases was it found impossible to secure entrance to concerns. Invariably, such concerns were resi- * See p. 23 for description of the methods used where field agents were not utilized, but expert groups were, as in the cases of office occupations and skilled trades. 1 to 4 5 and 13 14 to 22 I I 7-8 I 9 to 12 1 I 18-19 14-15 EMPLOYMENT OF HANDICAPPED PERSONS 17 dent plants of nonresident corporations operating under certain general policies. Generally, although under the rules of the parent company, no handicapped people “from the outside’^ could be employed, the local representatives were friendly. These concerns do take care of their own employees injured in service. Procedure in Making Contacts. After some experimentation the following procedure in making contact was followed. Telephone communication was established with the employer or general manager of the concern, and the state¬ ment was given that a study was being made in which he could be of assistance and that the caller would like to send a representative to explain. Then the question was asked whether he would be willing to grant an interview. In no case was such request for an interview refused. Use of Contact Letter. As employing concerns are frequently burdened by the efforts of various individuals to secure information, it was recognized that great care would have to be used in making the initial contact with employers and their representatives. As they had a right to know what was the purpose of the study, a clear understanding was necessary at the outset. This was the surest way to win their confidence and support. To insure these ends a form letter of introduction with inclosures was used. These are shown on pages 18 and 19. Experi¬ ence showed that the inclosures served very satisfactorily to prevent misunders t anding. 18 FEDERAL BOARD FOR VOCATIONAL EDUCATION Form letter of introduction THE WILLIAM HOOD DUNWOODY INDUSTRIAL INSTITUTE Minneapolis, Minnesota \ an endowed institution FOR INDUSTRIAL AND MECHANICAL TRAINING SURVEY OF OCCUPATIONS FOR THE HANDICAPPED Gentlemen: This letter will introduce to you a ’ representative of the Minneapolis Survey of Occupa¬ tions for the Handicapped. He is calling on you with the hope that you will afford him an opportunity to get the information which the Survey needs. The attached sheet gives a brief explanation of just what he desires to learn and points out some of the things with which he is not concerned in his visit. Anything that you do for him which will assist him in this work will be very greatly appreciated by the Survey and by me personally. Cordially yours, CAP:M Introducing: Director. EMPLOYMENT OF HANDICAPPED PERSONS 19 Sample of inclosed information sheet The purpose of this survey is to ascertain primarily those jobs at which an individual suffering from a specific handicap can work successfully. In addition, if there is no objection, it is desired to secure: (1) The average wage or range of wages, and (2) information showing whether the job in question can be or is filled with people who have had no previous experience in that line or whether previous experience in that line is required. The survey does not concern itself with such matters as indicated in the following list: 1. Employment policies. 2. Employment opportunities. 3. Employer’s attitude toward the handicapped. 4. Wages (except, if possible, range of wages on specific jobs). 5. Training opportunities, policies, and methods. 6. Lines of promotion. 7. Accident rate. 8. Compensation for accidents. 9. Working conditions. 10. Previous experience required for any specific job (except the spotting of jobs on which men without any previous experience in the business—novices—are hired). 11. Getting training content. 12. Previous schooling required for any specific job. 13. Labor policies. 14. Time study. 15. Manufacturing processes as such except as they involve motion study. 16. Welfare work. 17. Volume of business. 18. Profits. 19. State factory regulations. 20. Philanthropic employment. 20 FEDERAL BOARD FOR VOCATIONAL EDUCATION Studying the Jobs. After entry to a plant was secured, the usual procedure followed by the field agent, frequently in company with the superintendent or manager, more frequently with the foreman, was to observe the jobs as they were being carried on in that plant. As the field agents possessed either industrial or rehabilitation experience, they were able to check handicaps against the motion demands of jobs and to acquire as the study progressed a constantly increasing proficiency in this type of analysis. Brief discussions with the foreman or other representative frequently took place, after which the agent recorded his or their combined judgment. In order to assist the agent in deciding whether the physical (motion) demands of a job would bar a given handicap, the office of the survey drew up a list of 22 inhibiting factors which tend to prevent the employment of a person with this or that handicap, and indicated the corresponding disabilities affected by each factor. The list used follows. The figures in the second column refer to the corresponding numbers of standard handicaps as used in the survey and as given in a footnote to the table. List of inhibiting factors Inhibiting factor Disabilities concerned 1. Two arms are necessary........ 2. Two hands are necessary. 3. A grip is required to grasp firmly..... 4. Delicate manipulation is required. 5. The occupation requires a “job feel"... 6. Work requires two dependable (controlled) supports by the worker_ 7. Heavy weights must be lifted or carried... 8. Continual standing is necessary... 9. Continual walking is necessary.. 10. Too much bending over is necessary... 11. Climbing is necessary. 12. The work is done under damp conditions... 13. The work involves outdoor exposure.... 14. Work is done in an atmosphere irritating to the lungs.... 15. The job requires violent exertion... 16. Quick movements are required.... 17. Handicap involves special risk of fellow workman... 18. It is a gang job requiring team play... 19. Work involves special risks to the eye.... 20. The personal appearance required by the work bars the disability. 21. A surgical operation should first be performed (hernia). 22. Previous experience necessary.. I 1, 2, 3, 4, 27 , 28. 1 to 4; 9 to 12; 27, 28. 1, 2, 3, 4, 9, 10, 11, 12, 27, 28. 1 to 4; 9 to 12; 27, 28. Same as 1, 9,10,11,12, 20, 21, 22 . 14 to 23, inclusive. 1 to 4; 9 to 12; 14 to 22; 13, 24, 27, 28, 5, 25. 14 to 22, 24. 14 to 23, 24. 5, 13, 20, 21, 16, 17, 18, 19 (24)? 14 to 22 (24, if much). 24. 24. 24 (also asthma). 5,13, 24, 25. 1 to 5; 9 to 23; 24, 25, 27, and 28. 14 to 23. All but 6 and 26. 26. All but 6, 7, 5, 13, 25 (24). 13. Note.—T he numbers appearing in the right-hand corner refer to the numbers assigned to the various handicaps in the list of standard handicaps listed on pages 21. EMPLOYMENT OF HANDICAPPED PERSONS 21 Standard handicaps 1. Arm, right, off below elbow. 2. Arm, left, off below elbow. 3. Arm, right, disabled. 4. Arm, left, disabled. 5. Cardiac. 6. Deafness, partial 7. Deafness, total. 8. Deaf-mute. 9. Hand, right, disabled. 10. Hand, left, disabled. 11. Hand, right, mutilated. 12. Hand, left, mutilated. 13. Hernia. 14. Leg, right, off below knee. 15. Leg, left, off below knee. 16. Leg, right, off above knee. 17. Leg, left, off above knee. 18. Leg, right, disabled. 19. Leg, left, disabled. 20. Legs, both, disabled. 21. Legs, both, off below knee. 22. Legs, both, off above knee. 23. Leg, one shorter than the other. 24. Tuberculosis, arrested pulmonary. 25. Varicose veins. 26. Vision, one eye. 27. Arm, right, off above elbow. 28. Arm, left, off above elbow. The First Check. The procedure previously described produced a sheet on which was entered the opinions of the field agent who was assisted usually by discussion with the foreman. What became known as the ‘‘first check” was then carried out at the plant with the foreman or super¬ intendent or both for each department studied. This gave an opportunity for the reconsideration of the field agent’s judgment and frequently resulted in some changes on the checking sheet. Use of Memorandum Card. Reference has been made to the use of memorandum cards. In various discussions by the agent with representatives of the occupa¬ tion there would often develop valuable information, and, not infre¬ quently, disagreement. Sometimes evidence of the attitude of a concern or its officials toward the employment of handicapped people would be divulged, as well as special facts about certain jobs which handicapped persons have successfully performed, and other pertinent data. In the case of disagreements, reasons or arguments on both sides were made a matter of record on the cards. Samples of two such cards with the recorded data are shown on page 22. 22 FEDERAL BOARD FOR VOCATIONAL EDUCATION Samples of cards on which comments were made by field agents Sheet No.—C 91 Occupation—Rug making. Handicap—23 Job No.—6. The superintendent of the factory believes that the worker who operates the mule must have good legs of equal length. If the worker is agile, the field agent thinks he may be efficient even though one leg is shorter than the other. Sheet No.'—G 51 Occupation—Biscuit cracker manufacturing. Handicap—13 Job—1. Holmes & Graham say “Yes.” Gerhard & Schaal say “No,” because heavy weights must be lifted. Climbing and quick movements are required. EMPLOYMENT OF HANDICAPPED PERSONS 23 On these cards both handicaps and jobs are indicated by numbers, the handicap number being that given on the universal checking sheet, and the job number being a serial number given to the corre¬ sponding job on the same sheet. The sheet number consists of the initial letter of the agent’s name and bis serial number for the sheet. In addition, various kinds of auxiliarv information secured bv the agent were sometimes recorded on the universal checking sheet. After having been filled out and modified by the first check, the sheet, together vuth the cards, were returned to the survey office. The Skilled Trades. The procedure heretofore described was followed in studying indus¬ trial and manufacturing plants. The procedure used for the skilled trades follows. Such occupations as printing, machine-shop work, plumbing, house v\dring, sheet-metal work, and the so-called building trades have at least one characteristic in common. Thev can not be considered as specific jobs because aU the jobs in the trade may be performed by one worker. For purposes of analysis, therefore, they must be broken up into basic operations or into type jobs. Methods which have been worked out for making such analyses are described in the references in the footnote.^ The bulk of this checking was done by members of the faculty of Dunwoody Institute, who also arranged for and conducted the sub¬ sequent checking conferences with occupational groups. Office Occupations. Office occupations present essentially the same situation as do the trades. According to the size of the office, varying degrees of special¬ ization are found, ranging from a situation where one person does all the work to a large office where the work is highly specialized into such distinct jobs as comptometer operator, tabulating-machine oper¬ ator, mimeograph operator, and others. Here, again but one study resulting in one checking sheet was necessary. Large Commercial Concerns. In the case of large commercial concerns, such as hotels and depart¬ ment stores, the same procedure was followed as with the large indus¬ trial plants. One hotel, for example, was studied and the findings . were checked with its officials. Later the results of the first check were rechecked by the officers of another hotel. Office Procedures. No matter by what procedure the checking sheets were made out, they were returned to the survey office, where they were subject to either of two procedures, determined by the nature of the concern or occupation under consideration. 3 Selvidge, How to Teach a Trade; Allen, The Instructor, The Man, and The Job; Federal Board Bul¬ letins Nos. 52, 102, 106, 137. 113854—30-5 24 FEDERAL BOARD FOR VOCATIONAL EDUCATION In the case of manufacturing concerns, a checking was made by the chief clerk to see that all data called for was entered on the sheet and that all entries were legible, and to ascertain what additional checking was necessary in order that the sheets might be interpreted easily and accurately. A conference was then held between the field agent who checked the sheet and one or more of the survey experts, at which the whole experience of the agent in filling out the sheet was discussed from all angles. This plan sometimes resulted in a modification of some of the data on the sheet. Frequently this resulted in the recording of addi¬ tional information which the field agent had secured, but had failed to record, either through oversight or because he failed to appreciate its significance at the time the sheet was filled out. At this conference a decision was reached as to whether or not the sheet required further checking by the field agent with the represent¬ atives of the industry. If so, it was done; otherwise, the sheet was turned over to the ofl&ce for the further treatment to be discussed later. Procedure Used for Type Occupations or Jobs. In the case of type occupations or jobs; such as, flour milling, office work, and the skilled trades, a different procedure was followed. First, the check sheet as made out by the occupational expert or ,group of experts was checked at a conference with other representa¬ tives of the occupation, a field agent being made responsible for the arrangement of the conference. This procedure practically corre¬ sponded to the ‘‘second check’’ in the case of manufacturing concerns. Second, where disagreements arose and were not reconciled, the reasons for the disagreement were made a part of the record. Third, where these differences were found to be irreconcilable, the reasons pro and con were entered on an information card and subjected to an inside office check, at which minor differences were settled by experts in the office. In doing this, preference was given to the opinions of the representatives of the occupation rather than to that of the field agent. Fourth, where their importance seemed to warrant still further conferences, disputed points were discussed vdth representatives of still other concerns in the same line of work. Final Expert Check. After the .sheets had been carried through one of the procedures described, each check sheet was passed upon by a specially selected individual who noted the disagreements shown on the sheet, and the opinions and decisions were entered on a special sheet which was made a part-of the record. A sample follows: EMPLOYMENT OF HANDICAPPED PERSONS 25 Aljudlr r W:X. W- C.) at all ' • Serial 109 J. W. C. Grocery , Job 1. Doubtful for 14 and 15, would not do at ^1 In a big down town market, too much runi^ng to do.^/Bie'S?” No; too much change^ in temperature,)in and out of re-* frlgerator, and handling cold meat^ . oJ~. Q, ) Jobs 2 to 6 very doubtful for •©4e-^4 and 15,(WLMight do in ^ some situations but not in a chain _ - —.9 Jobs 1-. to 6 will have to be No for 13,^toomuchliftingWx times* It must be borne in mind that ^heae wages are for a 9 hr day and 54 hour week for women ,\ and a 60 hour week for men. \ A.E.S. (^<1 oJ-.c.) Through further conferences and decisions, a final understanding was arrived at so that the sheets in their final form represented the pooled opinions of the field agent, the foreman, the management, the survey experts, the special experts (in many cases), and an independent group of industrial representatives. The Case of the Unit or Single Occupational Establishment. In all cities there are found manufacturing concerns that turn out specialties. As a rule, the product is manufactured through a series of highly specialized jobs. Usually there is only one such concern in a community. The number of specialty factories of all kinds in Minneapolis, which is a center for specialty manufacturing, is per¬ haps larger in proportion to its size than in many cities. For convenience, these plants were designated as “unit plants.” With such it is obvious that no other plant could be drawn upon for a checking conference. Therefore, the procedure followed was that used for the ordinary manufacturing plant, except that the second checking conference was not included. RECORDING OF DATA FROM CHECK SHEETS AND NOTES ON PERMANENT FORMS Introduction. The procedures that have been described carded the checking sheet through the office procedure to the point where the data were ready for recording. Naturally, a card catalog system was adopted. Two card files were established, known as “File No. 1,” and “File No. 2.” File No. 1 is a classification of specific jobs by employable handicaps. File No. 2 is a classification of employable handicaps by specific jobs, alphabetically arranged; and by occupations, alpha¬ betically arranged. Through these two files it was possible to record in conveniently accessible form all the information secured through the survey. 26 FEDERAL BOARD FOR VOCATIONAL EDUCATION File No. 1. This file was prepared in order to enable an employment bureau to connect a given disability with employment possibilities on spe¬ cific jobs. It carries three items of information. First, a center guide card, giving the name of a standard handicap (as it appears on the check sheet); second, behind this guide card a list of all jobs, alphabetically arranged, which a person with the handicap could perform without any reservations; and, third, behind this list a list of all jobs, alphabetically arranged, which a person with the handi¬ cap indicated by the center guide card could carry on with some reservations, such as the need of an artificial appliance, or limita¬ tions as affected by the degree of the handicap. In the color scheme adopted the handicap guide card was manila and the job cards were green and gold, respectively. All cards were standard size, 8)2 by 5 inches. File No. 2. The purpose of this file was to enable the employment bureau to connect a particular job with a given disability and to make accessi¬ ble such other information as is pertinent to the problem of finding a job for an individual with a given disability. The catalogue in this file consists of a series of seven cards arranged in a certain order, each being of a designated color and carrying certain information. The order of the cards and the character of the information carried are given in Table 1 , page 27: EMPLOYMENT OF HANDICAPPED PERSONS 27 Table 1, — Order, description, and character of information on.cards in file No. 2 Order Name of card Description of card Character of information recorded on card 1. Alphabetic_ 1. Guide_ 1. Manila center guide cards. 1. Alphabetic order. 2. Alphabetic__ 2. Job card.. . 2. Standard gray cards. 2. (a) Name of the job. (6) Occupation in which found. (c) Novice, experience or train¬ ing required. (d) Wages. (e) Sex. (/) Seasonal or regular. (< 7 ) General or special. (A) Handicaps with which job is possible. (i) Handicaps with reserva¬ tions with which job is possible. O') Inhibiting factors. 3. Alphabetic_ .. 3. Occupational card. 3. Salmon standard. Name of occupa¬ tion on lobe in upper left-hand corner. 3. (a) Name of an occupation. (6) List of employable handi¬ caps for this occupation. 4. Behind the salmon card for the occupa¬ tion. 4. Employment pos¬ sibility card. 4. Standard green card. 4. List of all jobs in an occupation where employment of handi¬ capped people is possible. 5. Behind green card for the occupation. 5. Location card_ 5. Standard gold card. 5. Where occupation is carried on. 6. Behind gold card for the occupation. 6. Placement infor¬ mation card. 6. Standard white card. 6. According to the occupation all such things as— (а) Combination jobs. (б) Effect of age of concern on specialization. (c) Special employment conditions. .7 Behind placement in¬ formation card. 7. List of standard handicaps. 7. Red card_ 7. Standard list of handicaps (for reference). 28 FEDERAL BOARD FOR VOCATIONAL EDUCATION Job card [Gray card] Back tender Cardboard manufacturing JOB Open to: Novice. Wage: $17 to $22 per week. OCCUPATION Job is in: (Trade. [Specialty. V Seasonal; [Yes. iNo.V ^ . (Male. V ®‘"P‘°ydFemale. Remarks: “Yes” for handicaps 6, 23, 24, 25, 26. “Yes” with reservations for handicaps 11, 12. Thumb and first three fingers required. Occupational card ■ [Salmon card] BAKING Concern studied: Baking Department Dun woody Institute. Job possibilities for handicaps: 1, 2, 6, 7, 8, 11, 12, 13, 14, 15, 16, 17, 21, 23, 24, 25, 26. See also: Biscuit and cracker manufacturing. EMPLOYMENT OF HANDICAPPED PERSONS 29 Employment possibility card [Green card] BAKING This occupation includes the following jobs which could be done by persons with one or more of the standard handicaps: Bench man. Oven man. Bench helper. Oven helper. Cake icer. Packer. Delivery man. Pan greaser. Doughnut baker. Salesman. Flour blender. Janitor. Shipping clerk. Machine man. Stockroom man. Mixer. Truck loader. Mixer helper. Wrapper. i Location card [Gold card] BAKING Jobs in this occupation are found in wholesale bakeries producing bread, etc., to be retailed by groceries and delicatessen shops; and retail bakeries which produce a smaller output and sell over their counter or deliver on a small scale to their customers. In addition, some bakeries are operated in connection with other businesses such as chain stores. The names and locations of bakeries are found in civic and commerce association lists of manufacturers, the classified business section in the telephone book, and the city directory. 30 FEDERAL BOARD FOR VOCATIONAL EDUCATION Placement information card [White card] BAKING SPECIAL COMMENT In the larger bakeries (wholesale) the work is highly specialized, all standard machines of the trade are utilized, and there is a spread of jobs which were studied by the survey. In the smaller or retail bakeries a few of these machines may or may not be employed and there is a combining of specialized jobs into one job. In the typical retail bakery the workman does something of everything. In placing handicapped men in any of these jobs open to handicaps, the facts about the job as performed would have to be known. This can be gained by a synthetic study of require¬ ments of and handicaps permitted by the specific job. Standard handicaps card [Red card] STANDARD HANDICAPS The numbers in this file, which describe handicaps, are the same numbers with the corresponding handicaps given below. 1. Arm, right, off below elbow. 2. Arm, left, off below elbow. 3. Arm, right, disabled. 4. Arm, left, disabled. 5. Cardiac. 6. Deafness, partial. 7. Deafness, total. 8. Deafmute. 9. Hand, right, disabled. 10. Hand, left, disabled. 11. Hand, right, mutilated. 12. Hand, left, mutilated. 13. Hernia. 14. Leg, right, off below knee. 15. Leg, left, off below knee. 16. Leg, right, off above knee. 17. Leg, left, off above knee. 18. Leg, right, disabled. 19. Leg, left, disabled. 20. Legs, both, disabled. 21. Legs, both, off below knee. 22. Legs, both, off above knee. 23. Leg, one shorter than the other. 24. Tuberculosis, arrested pulmo¬ nary. 25. Varicose veins. 26. Vision, one eye. 27. Arm, right, off above elbow. 28. Arm, left, off above elbow. EMPLOYMENT OF HANDICAPPED PERSONS 31 Use of Files No. 1 and No. 2. These are interlocking files that were worked out by considering every possible situation that might come up in connection with the placement of handicapped people. In the case of a man suffering from a particular handicap, who has had no particular experience or has no skill in any line, file No. 1 would first be used. For example, a roustabout who had lost his right hand might apply for placement. The placement officer would use file No. 1, turning to handicap No. 11, shown by the center guide in the fist of standard handicaps. This file (No. 1) gives all the jobs covered by the survey which a man can successfully carry on under competitive economic conditions with his particular handicap, or those jobs which he could probably perform with the aid of an arti¬ ficial appliance. Having the names of these jobs, it is easy to find in file No. 2 the gray cards furnishing the data about each job. Since the man has had no previous experience nor skill to be conserved the search would be for some job on which he could enter as a novice. Information is readily secured from the gray cards. Where an individual has an employment asset or occupational training which could be conserved, the placement officer would use file No. 2. Take the case of a man who has lost his left hand, having been a hand compositor. Here the placement officer would go directly to file No. 2 and could locate the cards, arranged in alphabetical order, giving general information about printing. One card gives the list of all jobs in that occupation that can be performed by handicapped people. Another card lists the different handicaps which persons might have and still be employed in the occupation. If the loss of a left hand debars a person from work in printing, there would be no use in looking further in the files. If it does not, then an inspection of the cards listing the jobs in the occupation on which handicapped persons are employable soon reveals the job or jobs on which an experienced printer, 'who had lost his left hand, could be employed. File No. 2 Necessary in All Cases. File No. 2 has to be used as a second step in all cases approached through file No. 1. Since the information file No. 1 gives is organized by specific handicaps, and lists certain jobs at which a person 'with a particular handicap might be employable, the placement officer would naturally turn next to file No. 2 for the additional information necessary to assist him in placing the individual. In the case of an untrained man having no employment asset, the employment officer therefore wordd work from file No. 1 to file No. 2; but in the case of any handicapped person having an employment asset, he would work entirely 'with file No. 2. 113854—30-6 32 FEDERAL BOARD FOR VOCATIONAL EDUCATION Three Possible Procedures. There are three possible procedures: (1) Start with file No. 1 and proceed to file No. 2; (2) start with file No. 2 and continue with file No. 2; and (3) start with file No. 2, and continue until it develops that the handicapped individual, even though he has had previous experience in an occupation, is not employable in that occupation; then return to file No. 1 and make a new start on his case as a novice. Procedure No. 1 is illustrated by the case of a young man who, while driving a butcher cart, lost his right foot. File No. 1 merely says “Yes; with reservations,’’ that such a man can successfully operate a punch press with a foot trip. File No. 2 gives full information about the job of punch press operator as a novice job, including the necessity of an artificial appliance. File No. 2 also tells the placement officer that certain concerns in the city have such jobs and where they are located. Procedure No. 2 is illustrated by the case of a draftsman who has lost three fingers of his left hand. File No. 2 will show the placement officer those occupations in which his drafting experience would func¬ tion and which, therefore, so far as his handicap is concerned, are open to him. Procedure No. 3 is illustrated by the case of a riveter who has lost both legs above the knee. Inspection of file No. 2 shows that with this handicap he is absolutely barred from any occupation in which his past experience would be an asset. Under these conditions, resort would then be had to file No. 1 in order to learn what jobs for novices would be open to persons suffering from his particular disability. The Advantage of Having the Two Files. It would be perfectly possible to get along without file No. 1 since everything which is contained in file No. 1 is also given in file No. 2. The setting up of the two files, however, greatly facilitates the secur¬ ing of necessary information with regard to placement. In all cases of placement one must either start with the disability or start with the assets to be conserved. In every case an employment officer would face one of three possible problems: (1) The handicapped man may be a novice in all except unskilled work; (2) he may be experienced, but barred from his occupation by his handicap; and (3) he may be barred from his job, but not from his occupation. The two files were set up with regard to the possibility of rapidly dealing with all of these three type problems. Summary. As a matter of convenient reference, there is given a list of the various types of information which are furnished by these files: 1. A list of standard handicaps. 2. A list of jobs for which a specific handicap does not bar. EMPLOYMENT OF HANDICAPPED PERSONS 33 3. A list of jobs in which a specific handicap with reserva¬ tions does not bar. 4. A list of inhibiting factors to be considered. 5. A list of concerns having specific jobs which are possibilities for placement. 6. Wage ranges. 7. Sex of workers on specific jobs. 8. Whether the job is a novice job or is one requiring expe¬ rience, or training, or both. 9. Whether the job is a part of a trade or is a specialized job. 10. Conditions as to regular or seasonal employment. 11. Information as to special occupational conditions. 12. The relation of the occupation to the job. 1§. The relation of the job to the occupation. 14. Employment possibilities. 15. The relation of artificial appliances to employment possi¬ bilities. 16. A list of practically all employment possibilities in Min¬ neapolis. 17. A list of impossible employments in Minneapolis for the various handicaps, within the scope of the study. CONTROLS USED IN THE SURVEY Naturally it was necessary, as the survey proceeded, to devise methods of control for the purpose of insuring, first, the maintenance of standard procedures, and second, the possession of definite knowl¬ edge of the status of any individual study in the survey. The control of operation consisted of two kinds, a field and an office control. Field Control. For the general purposes of field control a master chart or master control sheet was used. This chart or sheet served to show, first, the field studies assigned to agents; second, the stage of these studies at any time; third, the contact made for each study. Office Control. The order of office procedure has already been described. Naturally, it was necessary to set up certain control points for the purpose of keeping track of the checking, by the office, of the general reports by the field agents, and of having a current picture of the status of each of these reports while going through the office procedure. Five forms were used, as follows: 1. A master control chart. Used as a check on the field work, and to follow up on the progress of the check sheets. 34 FEDERAL BOARD FOR VOCATIONAL EDUCATION 2. Assignment check chart. A perpetual inventory of the situations from day to day. 3. Conference assignment chart. A kind of perpetual inventory; dealing entirely with those cases where a further conference was found to be necessary with representatives of occupations. 4. The special expert check record. A chart for the purpose of keeping track of the checking by experts. 5. Final summation check record. A card for a final summation check covering the seven steps through which the checking sheets were carried. The Order of Office Control. The order of office control as already described on page 7 is for convenience reproduced here in tabular form: Table 2. —Office checking procedure Stage Purpose 1. Sheet goes in unchecked folder. 2. Sheet checked by chief clerk (assignment chart), sr Sheet checked by group expert. 4. If further conference was needed, notice was posted on conference bulletin board. 5. Sheets checked by special experts. 6. Sheets gone over in conference between field agent and special experts. 7. Sheets gone over in conference between field agent and the director of the survey. 8. Data carded. File 2. 9. File 1 developed from file 2. 1. To make accessible for corrections, and the like, by field agents. 2. To see that all required data were on the sheet and were consistent. 3. To decide if further conferences were required or additional information was necessary. 4. To secure further needed information and to reconcile differences of opinion. 5. To secure final additional check from an inde¬ pendent source. 6. To reconcile varying opinions. 7. To get a final concensus and a final decision. 8. For permanent record. 9. For easy use of data. While the survey data were being put through these nine steps it was necessary to set up certain control points, chiefly for the follow¬ ing purposes: 1. To keep track of the checking by the office of the general reports by field agents. 2. To have a current picture of the status of each of these reports while going through the office procedure. These control points were represented by five standard forms as follows: 1. The right-hand side of the master control chart. 2. The assignment check chart. 3. The conference assignment chart. 4. A special expert check chart. 5. The final summary check chart. EMPLOYMENT OF HANDICAPPED PERSONS 35 The Master Control Chart. This chart serves three purposes: (1) It shows the field studies assigned to agents; (2) it shows the stage of these studies at any given time; and (3) it shows the contact made for each study. The list of occupations given on the left side of the chart was derived primarily from the classified group of manufacturing establishments supplied by the chamber of commerce after the jobbing houses and wholesale establishments had been omitted. This list was supple¬ mented by information regarding commercial establishments, other than manufacturing, secured from the classified telephone directory, and by the knowledge of standard trades in the possession of em¬ ployees of the survey group and their trade associates. This chart was first set up as a blank form on a blackboard in order that changes could be rapidly made as the work went on. As this blackboard form became filled out, the data were transferred to a series of permanent charts which were conveniently placed for observation and reference. The serial numbers appearing on this chart were indispensable in keeping track of the assignments of agents and of all record work. The control assignments and general control chart described above showed, at any given time, the status of the work with regard to specific studies. * Chart 2. —Sample master control chart 36 FEDERAL BOARD FOR VOCATIONAL EDUCATION 75 Urn 03 <£) X a cd a o o 0) o w 3 o CO d? T 3 u cd O a> C 5 ^ 72 <£> d W < • S t-i U *-i a S S S ! 2 JC 3 a o © © © © © © Csl ® 3 ^ 3 -333 0 0 0 3 0 0 — ® * ^ 1 ^ ^ —H S C w o -yi CO Ui O) b£ o O C CO C c 3 o o o ® Ph' c-i . - —. 02 -S "o . ^ n Iz: ^ u iso ^ s ^ a 3 02 S, G CO o O O I2£ .s a >> .2 *3 o CO CO <9 iz; >> >> _© ffl ^ C 3 a cs 02 02 O £ ^ s £ O ® 3 Z S c O 3 CO u o c CO zo >> o t- 3 3 « c o CO o :::) ^ -2 ^ CO <5 o c; c3 C3 § <9 tc frn 3 c .2 > > > >> © O Sm © c3 3 >» ^ 33 fc^.S Cv o 'O ©«— fc- r»> C3 l-H g ■v ~?- •> > > > > n >» o +j ® "3 ’^'3 ^ a. tri OT c ir c 1 . '. '. 3< Cm Cm a , 03 02 02 m cr' a ® CO O X I 1 CO 02 1 E- 1 1 1 3 1 1 1 a © © d p a a CO 0 CO CO 02 CO CO o3 g§ © CO 1 1 1 1 1 1 1 1 1 1 i 1 1 < 1 1 1 1 1 1 1 4 1 1 I 1 1 • 1 1 1 1 1 1 1 1 1 1 1 • i t 1 t 1 1 1 1 1 *' 1 I 1 1 t < lilt II 1 1 1 1 II 1 1 1 1 • i 1 1 1 1 <1 1 1 1 1 1 1 1 1 i ^ 1 1 1 1 1 1 1 1 1 ■> ■> 1 ' 1 ' : 1 1 32 O! i 1 CO >• ^ ^ ^ '> CO s ^ s s § § CO o •- 2 "o >>•'?• >■ >• > >■ '>'?>'> ■>■ > ■> *■“ >1 ® ^ 03 ” C3 03 x: m '>'>'>>>■>■ ■> '> >■ -> > "I*- > >■ >• o :z: -t-3 ® ® X3 02 fM (N (N I I O P5 O —I ' ' O 03 ro 00 S' S' lO ei I I .i .2 I I O c; s: s) O O '<■ I I ; O »-o :<» i-o CO ro I I I I r-'\ r'^ w h-i -H 3^ 0 3^ 3 3 3 NJ s: N 1 1 1 3 1 1 1 3 1 1 1 c 3 C 3 3 3 3 3 n: N s; 3 ’w 3 O CO © X .J © tJ3 tX © © 0«s:OOOs3s:OQChQO O X X 3 .2 3 a 3 © © O bo 3 fcc CO O o x: X © 3 o x: a © tx tx bc C J tx bc © © o O .3 .- X> o O © a c o -4-9 3 > © 'a 3 bc © © ^ Xi > Kn 'T? I ^ = w a © CO r= 2 O © 3 © 3 3 © bx u> © © CO CO < 3 CO 3 3 ^ 2 S ''' 3 a CO ,3 tx 2 .3 3 3 3 XI o c b£ 3 & 3 3 3 © Ln 3 3 © JD c: bJO © 3 «M 3 C 5 fcc a — a a; =3 g 00 —! c3 5- o o ^ 3 : o 3 ^ H Ph © © CO 3 O 3 “f § 3 © •4^ Q tx . 3 C Xi u © a 3 a CO t-lz; 0>0'^C^CO^iOCOt^30©50^ CO Tj< 10 o 0 0 0^0 t-- uo 00 10 * Indicates telephone contact made with official of concern. EMPLOYMENT OF HANDICAPPED PERSONS 37 The Assignment Check Chart. This chart constituted practically a perpetual inventory of situa¬ tions and of changes in them from day to day. The numbers which appear on the sample shown on this page are the serial numbers as they appear on the master control chart. Numbers appearing directly below' the names of concerns indicate the serial numbers of the occupa¬ tions on w'hich the field agents are actually working. Numbers appear¬ ing in the second horizontal column show that contacts have been made by the director or some member of the administrative staff of the survey. As soon as an agent actually started work, the serial number of the occupation or concern was transferred from the ‘‘contact made” column to the “present job” column, and for convenience an was placed against the number. As soon as the check sheet had been Chart 3 .—Sample of assignment check chart Agent: Bressler Curtis Griffith Thomson Ziegler Zupann Millinery Present CroY/ley kifestern Ne.vs- Soo Line Girls' Vo- Northrup- Waldorf job: Fence Co. paper Union Railroad cational King Paper (97) (36) (19) (68) (99) (58J Contact 94 * >^* >6* if* 96* made: 55* 27 ' 32 63 97 * 65* 31 65 * 102 52 95 * 69 A5* 66 * 103 77 104 70 95 * 59 111 94 106 71 95* ■ 72 110 Contact 116 SI 66 101 62 to be 123 107 112 120 made: 109 127 turned in, this “ was crossed off as shown for numbers 88 and 91. numbers 102, 103, and 111 show^ that contacts have been made but that no work has been started with, those concerns, whereas numbers 116 and 123 show' that the contact is still to be made. This sheet, therefore, gave on any given date the followdng information: 1. Assignments to field agents by serial number. 2. What particular study was at that particular time being carried on bv each agent. 3. Those concerns mth which contact had been made so that the way was open for the agent. 4. Those concerns w'here contact was still to be made. 5. Whether the checking sheet had been turned in by the field agent to go into the unchecked folder. 38 FEDERAL BOARD FOE VOCATIONAL EDUCATION The Conference Assignment Chart. This chart was also a form of perpetual inventory which was changed from day to day. It dealt entirely with those cases where a further conference was found to be necessary wdth representatives of the occupation and enabled anyone connected with the survey to see at a glance what conferences were to be held, who was responsible for them, whether a definite time had or had not been set for the con¬ ference, and whether the conference had or had not completed its work in a satisfactory manner. A sample of this chart as it appeared at some one time is given below. Chart 4. —Sample of conference checking chart Serial Ko . Occupation or plant Date Place hour Remarks 9 Building construc¬ tion Prosser 40 Telephone Blllington 41 rower and Light 54 rhoto ll-S-29 ibbard 11:00 a.m. t’.D. P, finishing stuaios 61 Pu-rnlture After 3:00 p.m. MacAloon and Zupann 49 'Tubercular Jobs Radebaugh 11 Printing 11- 0-20 i^unv.’oody Institute 6:30 p.m. Landon 1 . c on aUnV.’OOdY Institute Kodak T n .. T T on ■ Oft Pinis.iing la leeale 11- 9-29 ■ Dim v/oody 1:00 D.m. Curtis and ±nd. instiuTlte Tl'iuiuusaii— 65 i'ood Bum. and Sash, Door After 3:00 p.m. KacAloon and Zupann Special Expert Check Record. Chart 5, page 39, was used for the purpose of keeping track of the checking by experts in stage 4 in the office checking procedure, page 34. Serial numbers on the left-hand side refer to the numbers on the master chart. As these corresponding checking sheets were given out to the field to be checked, the word ‘‘out” was inserted opposite the serial number. When they were returned, this word was crossed off. In certain cases the checking was done in the office. In such cases the word “out” does not appear upon the chart but an “X” appears instead. The chart, a sample of which is given, shows the following: 1. The number of sheets completely checked and turned in by the three men at a given time. EMPLOYMENT OF HANDICAPPED PERSONS 39 2. The serial number of the sheets which were out of the office a;nd in the custody of one of the three men and who was responsible for them. 3. The serial numbers of the sheets which had not yet been checked but were ready for checking. Chart 5. —Sample of special expert check record serial Checked by No. Schoettler Helm Mac. 1 2 X -®- 5 { 3X5ut (3) Q»ai 4 X 5 (Juft >< 6 Out QtgC 7 >c 8 >< 9 10 >C x ll Out 12 Out >< 13 X Out 14 X 15 16 Out 17 ife >< -Xf l9 20 21 52 X Out 23 x W ' 24 Ou^ 25 xf Final Summary Check Record. Charts 2, 3, and 4, being in the nature of perpetual inventories, were maintained upon blackboards so that they could be kept up to date by erasing dead material and substituting live material from day to day. As already stated, Chart No. 2, or the master chart, was maintained upon the blackboard; but as fast as the data had assumed permanent form, the material was transferred to permanent charts which were displayed upon the wall where they could be easily re¬ ferred to at any time for any purpose. The final summation’check, which covered steps 1 to 7, to insure that everything was in shape for carding, was a card, a sample of which is shown on page 40. 40 FEDERAL BOARD FOR VOCATIONAL EDUCATION Final summation check record [Yellow card] Front Serial No.—1. Sheet No.—Di 2. Finis Occupation: Electrical, advanced. Concern: Electrical department, Dunwoody Institute. Sheets obtained by: L. H. Drinkall and Oscar Timpte. Plant check by: Drinkall and Timpte. Conference check by: G. C. Knoll, Westinghouse Electric Co. Ungerman, Bonstead Electric Co. Back (1) STANDARD OFFICE CHECK BY V Schoettler. V Helm. _Billington. V C. A. Prosser. V F. D. Prosser. V Cross check by agents. V Direct check by agents. V MacAloon. _C. R. Allen. _T. B. experts. _Medical and surgical experts. Remarks: EMPLOYMENT OF HANDICAPPED PERSONS 41 The setting up of these control points and the devices which were used to keep track of the office procedure gave very satisfactory results. According to the standard procedure finally adopted, a standard office check card, properly filled out, had to be in a file before carding of data was started off the job check sheet, with the excep¬ tion of the check on pathological cases. The above description ' covers the methods which were adopted for control of office procedure from the time the check sheet was brought into the office by a field agent to the time that the data entered into the carding process for permanent recording in file No. 2. Part V FINDINGS OF THE SURVEY A survey of this type could not have been carried on without disclosing many situations having a bearing on the objectives of the survey, or without securing much incidental valuable information. From the findings of the survey a number of conclusions appear to be justified. Some of them are verified in the data; the others must be accepted as the opinions of the survey group based upon experi¬ ences obtained. GENERAL FINDINGS Many Job Opportunities. On the basis of physical ability to perform them on a competitive economic basis, there are many possible employments in Minneapolis for handicapped people. To put the matter in a different way, if consideration is given only to job requirements and the ability of individuals with specific handicaps to meet those requirements satis¬ factorily, the number of jobs at which the disabled could be profitably employed in that city is large. The number of jobs on which handicapped people are employable is reduced in practice because of the attitude of some employers toward hiring handicapped persons. Nevertheless, the ratio of oppor¬ tunities for employment to the number of cases suffering from a spe¬ cific handicap is reasonably large. Lack of Placement of Disabled on Business Basis. With the exception of the State department of rehabilitation, vir¬ tually no agency in the city of Minneapolis is attempting to place handicapped people on “a business basis.” Incidental to the work of the survey, a considerable number of cases were found of handi¬ capped persons successfully employed. Most of them were employed, however, for more or less unscientific reasons; such as, the personal influence of a friend, pity of the employer, or policy of the employer to care for his own injured workmen. In few cases had placement been carried out from the standpoint of the ability of the individual to fill the job on an economic basis. Management’s Past Indifference to Scientific Placement of the Disabled. It was found that the great majority of employers and foremen have never seriously considered the possibility of scientifically placing disabled people. Naturally enough they are unacquainted with such procedures as the making of job motion studies, nor do they know 42 EMPLOYMENT OF HANDICAPPED PERSONS 43 how to approach scientifically the problem of employing the handi¬ capped worker. In many cases they have never thought of the prob¬ lem as capable of solution. Need for Placement Bureau for All Handicapped. The survey demonstrated plainly that such placement service for the disabled as is now being rendered is being done by agencies which are not technically competent in the field of scientific placement. These agencies are scattered, and have no effective cooperative rela¬ tions vdth one another in dealing with the large and difficult task of helping handicapped people secure suitable jobs. This is no reflec¬ tion on these agencies, as the task requires expert, unified, and cor¬ related service such as only a joint bureau for all handicapped persons can give. Opinion of Group on Employment Possibilities of Various Handicaps. Reference has been made to the care which was used in arriving at a consensus regarding every job in the occupation studied with regard to the question whether a worker with a given handicap could meet the physical requirements of the job. In this careful analysis of job requirements and the ability of disabled persons to meet them, it developed that representatives of concerns were often less optimistic than were the members of the survey group concerning the possibil¬ ities of employment for a given handicap. In the majority of the cases, however, there was a practical agreement among all parties. Interest of Industry in the Employment of the Handicapped. The survey brought to light a great deal of interest in the whole question of the employment of handicapped people. This accounted largely for the high degree of cooperation which was given the survey workers by employers and others in the making of the study. In this connection, employers and foremen clearly recognize that certain advantages are often gained through the employment of the disabled. It is felt that in many cases a handicapped individual would be more reliable and dependable than the normal worker. For instance, it is a well-known fact that certain occupations do not require the giving of oral instructions. Take, for example, the pattern- making trade. Wherever such conditions exist the survey found to a marked extent a belief that a worker suffering from deafness would give greater concentration to his work and be less likely to waste time talking to other workers. Cooperative Attitude by Management. It has been stated that the survey workers found the management most cooperative. This was due primarily to the general interest in the problem of the employment of handicapped people; and, in no small degree, to the precautions taken to define very clearly just what information the survey was attempting to secure; and to the care used 44 FEDERAL BOARD FOR VOCATIONAL EDUCATION in confining the study to limited objectives and in avoiding all con¬ troversial issues that were not germane to its purpose. It was surprising to find that there was a real interest in the matter of scientific placement. Even in the case of concerns which had a policy of not offering opportunity for employment outside their own employees, there was considerable interest shown in better placement for their own handicapped employees. These employers recognized that their placement of their own injured workers had often been casual in that they were placed on jobs which did not correspond to their abilities. A desire to become better acquainted with scientific methods was evidenced. Use of Artificial Appliances. The results of the survey indicated strongly the necessity for the use of artificial appliances wherever possible as a means of increasing the range of employable jobs for specific handicaps. Jobs Requiring Contact With the Public. Where jobs require direct contact with the public, such as in hotel and department store occupations, handicaps which produce disagree¬ able reactions constitute in many instances serious bars to employ¬ ment. If the disability is not visible while the worker performs his task this is not the case, but it is doubtful for example whether an individual who has lost an arm or limps badly can under normal con¬ ditions secure employment as a bell boy in a first-class hotel. On the other hand, the loss of a foot would not bar employment of a food checker who always sits at the job. The survey encountered many jobs which a worker could perform successfully, but from which he was barred because of the standard of a type of “personal appearance’’ required in dealing vdth the public. In the case of hotels, however, the chances of employability increased as the hotel decreased in size and grade of service. These conditions applied in other types of occupations. The Effect of Serious Handicap. The survey showed plainly that there is a considerable group of handicaps which practically prevent employment for the disabled. Such handicaps include blindness, amputation of both legs above the knee, both arms above the elbow, or both arms practically dis¬ abled. Obviously, this is because most jobs require the use of hands and the ability to move about. Only in certain extraordinary cases are individuals suffering from such handicaps ahle to perform jobs in competition with the unhandicapped worker. Pathological Cases. Among the most important of pathological cases is the disability of hernia, which, in the opinion of many, should not be treated as a disability. Testimony of medical authorities is that in practically every case the hernia can be removed by proper surgical treatment. EMPLOYMENT OF HANDICAPPED PERSONS 45 It is obvious, therefore, that the first thing to do in the case of hernia is to cure it before attempting to place the applicant. With regard to cardiac and tubercular disabilities, the survey brought out plainly the need for preliminary physical examination in each case. For these handicaps, it is impossible to set up definite standards, be¬ cause so much depends upon the conditions in the specific case and the job demands. From the viewpoint of placement, therefore, such cases should be given special treatment with regard to placement. With regard to disabilities arising from varicose veins, the tendency was to set up a minimum rather than a maximum standard. This handicap seems to present individual problems to be considered specially from the medical standpoint as well as the demands of the job. Eye Disabilities. The survey disclosed that the loss of an eye is practically no handi¬ cap for most jobs so far as performing the work goes, except in such cases as those of truck driving and structural iron work. The handi¬ cap does in many cases, however, raise the question of risk by both the employer and the worker from the standpoint of the hazard of second injury. Relation of Specific Handicaps to Range of Employment Possibilities. The results of the survey appeared to indicate rather definite relations between the probable number of cases of any specific handicap and the range of employment possibilities in the community; for example, the number of cases of double leg amputation above the knee is small and employment possibilities are small. Generally speaking, it can be said that there is roughly a ratio between employment possibilities and the degree of occurrence of disabilities. The largest group of handicapped persons in Minneapolis are the arrested tuberculous, and the survey shows a wide range of employ ment possibilities for this group. Effects of the Degree of the Handicaps. The survey showed plainly wide variations in employment possi¬ bilities in accordance with the degree of handicap. This is particu¬ larly true with regard to mutilations of the hand. Such indefinite statements as ‘‘right hand mutilation’’ or “arrested tuberculous” mean little in terms of probable employability on specific jobs. Con¬ sequently, an attempt was made to indicate the degrees of handicaps in their relation to jobs. For example, a tile setter has to be able to lift a tile 6 inches square. If he can do this with a mutilated right hand, he can lay tile. In order to do so he would have to have a thumb and at least one finger so situated that he could make a 6-inch stretch. It was brought out in the survey, therefore, that there is a necessity of very definite!}^ specifying the degree and character of 46 FEDERAL BOARD FOR VOCATIONAL EDUCATION disability in the determination of the employability of a man with a handicap. Adjustment of Working Conditions. It was indicated that there are many cases where a slight adjust¬ ment of working conditions makes economic employment possible. A number of jobs can be carried on just as well sitting as standing. If the handicap prevented continuous standing or walking, the man would not be employable on a standing job or a walking job; but if it were made possible for him to sit at the job, his job efhciency would not be diminished. This situation was found to be quite common. Specialized Jobs. Results of the survey showed certain facts with regard to the range of employment possibilities in different types of employment in the city of Minneapolis. The conditions probably would be equally true in any other city. Employment possibilities increase in proportion as the jobs become highly specialized. Employment opportunities decrease in proportion as the occupation is a skilled trade of a general job requiring a wide variety of motions. As a corollary to the above statement, employment possibilities for a specific handicap increase in proportion as the demands of the occupation or job become specifically known. It is a characteristic of the skilled jobs that the work has to be carried on under all sorts of conditions which can not be determined or forecasted; for example, no one can predict the conditions under which a house wiring elec¬ trician or a plumber may have to work. Evidently if any one job or set of working conditions in these occupations would debar a handicapped man from successfully performing them, he would be unemployable in the whole trade, except in so far as the practice of the trade may have been specialized. This uncertainty as to the demands which the workman may have to meet very greatly narrows the opportunities for the employment of persons in many of the skilled trades, particularly the building trades. Highly Specialized Jobs. Finally, the results of the survey indicated clearly that a placement bureau for handicapped people will be able to function to the best advantage in a city having a large number of commerica] offices and manufacturing concerns offering highly specialized jobs. Oppor¬ tunities would be restricted in proportion as the converse situation existed. RESULTS OF THE SURVEY AS AFFECTING POLICIES AND PROCEDURES IN REHABILITATION WORK Persons acquainted with the problem of the employment of handi¬ capped persons recognize the existence of three rather ill-defined groups. First, there is a group who by virtue of mental ability, edu- EMPLOYMENT OF HANDICAPPED PERSONS 47 cation, and other assets are capable of carrying on work where the individual is paid for the use of his mental powers rather than those of his hands. This is true in all forms of managerial, supervisory, executive, or professional employment. Second, there is the group who have already secured definite assets in terms of knowledge and skill (experience) in some line of work; but who are barred from continuing exercise of that skill through incurring some handicap. Third, there is the group composed of individuals who have no em¬ ployment asset derived from past training and experience; and who, by virtue of having incurred a handicap, are debarred from continuing in the old job, and who lack the necessary education and mental ability to follow what might be called “head” occupations. Day laborers who lose a leg or hand often fall into this category. Retraining Agencies. In dealing with these groups a rehabilitation service has practically two agencies to which to turn. First, there is the institution giving organized training on either a novice or extension basis; such as a professional school, business college, trade, or agricultural school, and possibly a correspondence school. Second, there is training on the job. This is commonly called placement or employment training and usually consists of the placement of a man on a particular job for the duties of which he is to be trained by his employer. Placement training may take various forms. It may comprise a definite agree¬ ment whereby some individual in the occupation is made responsible for the training of the worker and this individual may be paid for his services. It may also take the form of placing the handicapped man in the occupation as a novice to be broken in by the ordinary methods. In most cases those who have definite possibilities for “head” occupations are usually trained in a school in advance of the pursuit of the occupation; for example, a girl who had been a waitress, after losing a leg below the knee, was sent to a business college and trained to become a stenographer. In the case of a handicapped person having previous assets of skdl and knowledge in some occupation, the training may be done in a number of ways. He is adapted, if possible, to some other job in the line of work he has been pursuing. In this adaptation he requires special training in those things he needs to meet the demands of the new work he is to do. Quite frequently this adaptation is accom¬ plished, at least in part, through training in a school. In many cases, because of his familiarity with the occupation in which he has been employed, he is shifted directly to the new job. He is broken in on his new duties by one of the other methods de¬ scribed above. In some cases a handicapped person with previous skill and knowledge in some job goes through a process of retraining for|the same job. A good illustration is that of a man who has been 48 FEDERAL BOARD FOR VOCATIONAL EDUCATION a draftsman and loses his left arm below the elbow. He may be fitted with an artificial arm and taught to do his drafting work with the help of the appliance. The training is usually given in some school. Some General Rehabilitation Principles. All rehabilitation workers are aware that individuals possessing the necessary ability and assets to successfully pursue a ^‘head’’ occupa- pation should be trained for such occupation. The essential pre¬ requisite is the determination before the training is undertaken, that the individual possesses the requisite mental capacity, previous school¬ ing, and physical ability. Again, plain economic wisdom, as well as greater ease in placement, requires a policy which will conserve to the highest degree any experience, knowledge, or skill already possessed by the handicapped person. These assets should be capitalized to the greatest extent possible. In other words, the shifting of a worker from one occupation or line of work to another entirely dif¬ ferent should be undertaken only as a last resort. Efficient Operating Conditions. The results of the survey show that the employment of handicapped people is seriously inhibited in many cases by lack of information on the part of employers, by certain attitudes of mind toward the employment of handicapped people, and by certain employment policies which also restrict the employment of this class of individuals. This situation calls for very definite educational work on the part of rehabilitation officers and by placement bureaus for handicapped people. It is obvious that work of this kind can not be carried on from a swivel chair. The results of the survey indicate that one of the largest problems which has to be worked out is the improving of the situation with regard to the removal of those inhibiting factors which are ‘‘pseudo’’ rather than real. In proportion as those in¬ hibiting factors which are not based upon fact can be reduced or removed, the opportunities of placement are correspondingly in¬ creased. Certainly, only by such a method can the authorities responsible for a placement and training program exercise a construc¬ tive leadership in any community or State. Furthermore, only by such a policy will they be able to define what might be called an era of real opportunities for handicapped people. Certain Difficult Problems. While the survey was confined directly to the study of the funda¬ mental facts about jobs and handicaps which an employment bureau would need most of all, the staff acquired incidentally, in dealing with employers and their representatives, a body of additional in¬ formation about certain obstacles to the placement of handicapped persons with which such a bureau, if established, must cope. These EMPLOYMENT OF HANDICAPPED PERSONS 49 obstacles are not inherent in the job or in the handicap of the pros¬ pective worker. They are rather the notions, beliefs, policies, and procedures of concerns and their representatives which prevent them from dealing with the problem of the handicapped man in a more discriminating wav and therefore in a more scientific and eJOdcient way. Some of the most vital and difficult of these inhibitions or restrictions can be described under such headings as these: 1. Conserving their own employees. 2. ‘‘Foreign’’ management and remote control. 3. “Too much trouble to employ handicapped people.” 4. Creating an increased accident risk. 5. Creating a second injury risk. 6. The effect of group insurance. 7. The effect of medical examination. 8. Increased production costs. 9. The effect of the “charity appeal.” 1. Conserving their own employees. —In the course of the survey, a number of concerns, some large and some small, were encountered who cooperated in the study of their plants, but who said very frankly that their policy with regard to handicapped people was “to take care of their own and only their own.” Beyond this point they would not employ handicapped people. While these concerns had adopted such a policy, they felt that the information gathered through the study of their own jobs would be of great value to them because it would help them to place any person injured in their employment in the position to which he is best adapted. 2. Foreign management and remote control. —Quite a number of the concerns studied, and others not studied, were found to be branch plants or offices of large corporations doing business in other cities. Such concerns are carried on under what might be called “foreign management ” or “remote control.” Under these circumstances, such a corporation is very likely to set up employment policies wliich bar many handicaps, and which the local management has no power to change. The survey seems to indicate that in many cases these rules, regulations, and requirements, usually including physical examina¬ tion, while admirably adapted to some jobs, are very drastic in the case of other jobs because they shut out from employment worthy people with some handicaps who could be successfully employed. 8. ^‘Too much trouble to employ handicapped people.” —There were a few concerns where the opinion was expressed, especially by the fore¬ men, that, while people with certain handicaps could undoubtedly do certain jobs in the plant, it was “too much trouble” to emplo}^ them. In many cases, this constitutes probably the most difficult obstacle in the way of employing people with certain handicaps who might do certain jobs successfully. 50 FEDERAL BOARD FOR VOCATIONAL EDUCATION There is no remedy for this attitude of mind of which the surve}^ is aware, except, possibly, the continuous education of such officials toward a more favorable point of view. It should be pointed out, however, that what is needed is not a charitable or philanthropic point of view, but a business point of view which can be expressed essentially as follows: These jobs can be successfully performed on an economic, competitive basis by persons having certain handicaps. When this is true in any given case, the worker should not be barred because of such a handicap. Jf. Creating an increased insurance risk. —During the last 10 years, great emphasis has been laid upon the reduction of accidents. Such agencies as the National Safety Council have put emphasis on safety through articles in house organs, through the employment of safety engineers, and through the promotion of safety campaigns. All this has tended strongly to emphasize the desirability of reducing the accident rate to a minimum. Naturally one would expect this pres¬ sure to affect the willingness of some foremen and employment man¬ agers to hire handicapped persons, and the survey found here and there evidence of this fact. Where such oflB.cials w^ere encountered they based their attitude on the general principle that a handicapped person increases the general danger not so much on the job itself, but merely because he is in the establishment. It would not be surprising ’to find that an individual with an artificial leg was looked upon, utterly regardless of his job capacity, as an undesirable employee because of the increased danger of some accident, such as falling down¬ stairs or falling against another worker or against a piece of machinery. 5. Creating a second injury risk. —In every community, employers are disturbed about the risk of heavy damages to workmen under the old common law liability. Where suit is brought, instead of submit¬ ting the case to the compensation commission, juries, naturally enough, often award large verdicts to plaintiffs who have suffered a second injury of the same kind as the first one. This occurs, for example, where a one-eyed man loses a second eye or a man having lost one hand loses the other. Undoubtedly, such risks do cause many employers to refrain from hiring men with such handicaps. 6. The ejffect oj group insurance. —Group insurance is now very commonly utilized, particularly among large plants and large business and industrial organizations. As a result, there exists a considerable reluctance on the part of some employers to employ handicapped people. They fear that the insurance company would regard them as introducing an additional risk into the group-insurance plan. While denied by the casualty companies, there is undoubtedly a very general impression abroad among foremen and superintendents that the effect of employing handicapped people would be to increase the rate for such group insurance. EMPLOYMENT OF HANDICAPPED PERSONS 51 7. The effect of medical examination. —Many industrial concerns and some commercial concerns now make the passing of a satis¬ factory physical examination a prerequisite for employment. Where such a pohcy is in operation, a handicapped person is likely to have difficulty in securing employment; and, in many plants, would be entirely barred from employment, no matter how well he could do the job. 8. Increasing 'production costs. —In general, any individual is employed on the theory that he can produce to an extent which will justify his wage and yield a profit to the employer. Kesponsible officials, such as chief clerks and foremen, are continually being pushed by their superiors to get out production at minimum cost. This tends to create a state of mind among such officials which regards with suspicion every handicapped man. They fear that he may not be able to produce on a basis of economic competition with a normal individual and vdll thus increase the unit cost of producing goods or service. Hence, it is to be expected that such a point of view will affect the actual employment of handicapped people to a greater or less extent—an expectation which was verified by the experiences of the survey staff. 9. The effect of the charity appeal. —Unfortunately, perhaps, there has been considerable effort by some agencies to get employers and foremen to give work to handicapped people solely on a philanthropic or charitable basis. This appeal, while well intended, has created in many cases an unfavorable attitude of mind toward the placement of aU handicapped persons, even on an economic, competitive basis. As already stated, the purpose of the survey was solely to ascertain those jobs on which a handicapped individual could successfully compete. It is to be expected, however, that, to a certain extent, the degree to which employers and foremen have been requested to employ handicapped people on a philanthropic or charitable basis, will constitute a corresponding difficulty when an employment bureau undertakes to place them on a business basis. CONCLUSIONS AND RECOMMENDATIONS One of the main purposes of the survey was to answer a number of vital questions bearing on the advisabffity of establishing an employment bureau for the handicapped in Minneapolis: I. Does there exist in the city of Minneapohs a sufficient number of jobs which can be performed by individual persons on an economic, competitive basis to warrant the setting up of a placement agency? The answer to this question is “yes” for the following reason: Each of the 2,515 jobs studied, in the opinion of the field agents and conference groups, can be performed efficiently on an economic, competitive basis by a worker having one or more of the 28 standard 52 FEDERAL BOARD FOR VOCATIONAL EDUCATION handicaps listed. This indicates that there is a sufficient volume of placement work to warrant the setting up of an agency charged with the responsibility of rendering this particular type of service. The estimated number of cases per year is 1,200. 2. The second question may be stated as follows: Is a placement bureau necessary? This question is also answered ‘‘yes’’ for the fol¬ lowing reasons: (а) As already reported, such work as is now being done is being- done by scattered agencies. The inefficiencies of this arrangement are obvious. (б) This particular type of social service is of a very difficult nature, if it is to be rendered in an efficient way. It can be so rendered only by a definitely organized and properly equipped agency. (c) The work of the survey has distinctly revealed the need for leadership if this employment service for the handicapped is to be rendered in a successful manner. This leadership can only be secured through a definitely established service unit. (d) If the work is to be successful, there is need for a highly intelligent and efficient system of follow-up. Again, this can only be secured through a properly organized, separate unit. (e) The survey experience plainly shows that the possibilities of employment will be widened in proportion as educational work Js carried on with employers, foremen, and others who control the placement situation. This educational work can be performed only through an organization specifically charged with the responsibility for the placement of handicapped people and qualified in its personnel to carry on such educational work. (/) Any agency undertaking to do this work efficiently must keep abreast of the development of the movement, and must also possess at all times accurate knowledge as to the local situation. The survey, as has been pointed out elsewhere, sets up a picture of the situation as it exists at this time. This situation is continually changing. With the development of industry, constant changes in processes and corresponding changes in the requirements of jobs, a placement agency must deal with a dynamic or fluid rather than a static situation. Desired results can only be secured through an agency which is made specifically responsible for dealing with the whole question of the placement of handicapped people and which is qualified to do this work efficiently. (g) It is a well-recognized principle in organization and adminis¬ tration that no piece of work can be well done unless responsibility is definitely fixed for the doing of that work. That principle applies here. The work of placing handicapped people efficiently will not be effectively carried on unless definite responsibility is fixed. Such responsibility can not be fixed as long as this work is left to a variety of scattered agencies. EMPLOYMENT OF HANDICAPPED PERSONS 53 (h) In addition to the above specific reasons why a placement bureau should be established, there is the generally admitted fact that whenever any important piece of work is to be done a definite agency definitely organized to do that special work is the efl&cient way to get it done. Questions 1 and 2 having been answered in the affirmative, the recommendation is therefore made that a bureau be established for the purpose of placing handicapped persons on jobs which they can perform on a basis of economic competition with normal individuals on the same jobs. Should this recommendation be carried into effect, however, it is necessary to point out that this bureau, in order to succeed, should have certain characteristics. Characteristics of the Recommended Bureau. Such a bureau might be established in a wide variety of ways; but in the opinion of the survey, there are only two possibilities which offer much prospect of efficient operation. The first alternative is that the proposed bureau should be an entirely independent bureau privately supported or endowed, and operated independently of any other organization in the city of Minneapolis. The second alternative would be that the bureau should be an independent bureau controlled by a representative board composed of representa¬ tives of those philanthropic agencies in the city of Minneapolis which would in any way function in the work of the bureau. Financial support can come either from the various agencies or from the com¬ munity fund. Organization and Personnel. The suggested organization is that of a director, field agent, and office clerk. The director should be preferably a local man who, if possible, should have had contact with the survey. He should have had occupational experience and should have had executive experi¬ ence. Highly desirable additional assets would be a knowledge of the possibilities in the utilization of artificial appliances, a knowledge of placement problems, a knowledge of rehabilitation problems, and the ability to use analytic methods in their applications to vocational education. From the standpoint of personnel, he should possess courage and leadership ability, and he should be a type of individual who first makes sure that he is right and then goes ahead. The field agent or assistant, who might very well be a woman, should possess the same qualities as the director to a lesser degree. The clerk, who would naturally be a woman, should be able, in addi¬ tion to her ordinary abilities as a stenographer and typist, to handle catalogue work; should have good human contact qualifications; and should have some executive ability. 54 FEDERAL BOARD FOR VOCATIONAL EDUCATION Estimated Cost. « It is estimated that the cost of a bureau as described above would approximately come to the sum of $7,000 a year, as an absolute minimum, but $10,000 would be required to do the work in Minne¬ apolis efficiently. All past experience in vocational education and rehabilitation training work has shown very clearly that the success or failure of this enterprise depends very largely upon the qualifications of the individuals wffio are employed to do the work. Cheap people will do a cheap job. The sort of people who can be secured to do a first-class job are not cheap people. One of the worst mistakes that could be made would be to set up a placement bureau in the city of Minneap¬ olis and put the work in charge of a cheap personnel. The only result would be failure and a discrediting of the whole enterprise. It may be weU to point out here that, both in vocational education and in rehabilitation work, competent workers have a cash value in other occupations; consequently salaries must be paid in competition with what they can secure in other occupations for which they are also fitted. This is one of the ways in which the problem of securing a competent personnel resembles the problem as it exists in industry rather than in education. In discussing the qualifications of personnel for the proposed bureau, it wall be noted that no mention has been made of academic educa¬ tional qualifications. This omission is deliberate. In the opinion of' those making this report, ordinary academic requirements, such as are represented by long experience in regular educational work or certain advanced academic degrees, have little, if any, bearing upon the question of the efficiency of the personnel of the proposed bureau. Indeed, the probability is that an individual who had been putting in his time teaching or securing academic degrees would not have been able at the same time to secure those experiences and those assets which would actually count in the job w^hich the proposed bureau would have to do. The Need for Keeping Up Data. The survey material as compiled is of current date. Because of continual changes in employment conditions,- in job demands, in employing organizations, and in many other varying conditions, this material must be kept continually up to date; otherwise it will soon lose its value, and soon become a source of misinformation rather than a source of help. i' Part VI SAMPLE JOB FINDINGS OF SURVEY As has been explained heretofore the findings of the survey with respect to job opportunities for specific types of handicapped persons were recorded on cards for use by the placement ofiicer. These cards, as has been explained, are carried in two different files, each having a specific use. Obviously, it would have been impracticable, owing to extremely high cost, to duplicate in any form the thousands of cards contained in these files. It has, however, been deemed ad¬ visable to give in this report some samples of the cards, selected more or less at random but grouped by occupation. These are shown in the following pages. The following exhibits from No. 1 to No. 15, inclusive, are taken from file No. 2 described in Part IV of this report. They are sample cards representing jobs selected practically at random from the occupations of advertising signs, auto service, baking, bottling, and candy making. Exhibits Nos. 16 to 30, inclusive, are selected repre¬ sentative cards from file No. 1. It is to be understood that except in some instances these cards do not contain all the jobs listed for the particular handicap. Sample Card No. 1 STANDARD HANDICAPS The numbers in this file which describe handicaps are the same numbers with the corresponding handicaps given below: 1. Arm, right, off below elbow. 16. Leg, right, off above knee. 2. Arm, left, off below elbow. 17. Leg, left, off above knee. 3. Arm, right, disabled. 18. Leg, right, disabled. 4. Arm, left, disabled 19. Leg, left, disabled. 5. Cardiac. 20. Legs, both, disabled. 6. Deafness, partial 21. Legs, both, off below knee. 7. Deafness, total 22. Legs, both, off above knee. 8. Deafmute. 23. Leg, one shorter than the other. 9. Hand, right, disabled. 24. Tuberculosis, arrested pulmo- 10. Hand, left, disabled. nary. 11. Hand, right, mutilated. 25. Varicose veins. 12. Hand, left, mutilated. 26. Vision, one eye. 13. Hernia. 27. Arm, right, off above elbow. 14. Leg, right, off below knee. 15. Leg, left, off below knee. 28. Arm, left, off above elbow. 55 56 FEDERAL BOARD FOR VOCATIONAL EDUCATION Sample Caed No. 2 JOB Open to: Novice. Wage:_ Seasonal: INo. Remarks: Trained. OCCUPATION Experienced. Job is in: {gpec^lty. Sample Card No. 3 1 ^ Artist Advertising signs JOB Open to: Wage: $65 per week. Seasonal: Yes. Trained. OCCUPATION Experienced. Job is in: Specialty. Employ: Male. (t ((' Remarks: 'Yes,” for handicaps 5, 6, 23, 24, 25, 26. 'Yes,” with reservations for handicaps 11, 12,14,15, 16, 17, 18,19, 20, 21 , 22 . Thumb and first two fingers required. Artificial appliances necessary for 14 to 22, inclusive. Verbal communication necessary with customers and salesman. In case of 5, Doctors Nathanson and Wright say “Questionable.” EMPLOYMENT OF HANDICAPPED PERSONS 57 102-a Sample Cakd No. 4 Bill poster Advertising signs JOB ! OCCUPATION Open to: Trained. Experienced. Wage: $47 to $50 per week. Job is in: Specialty. 1 Seasonal: Yes. 1 Employ: Male. i Remarks: I “Yes,” for handicaps 6, 7, 8, 23, 25, 26. “Yes,” with reservations for handicaps 11, 12, 14, 15, 16, 17, 18, 19. j Thumb and two fingers required to grasp paper, brushes, and buckets, i Artificial appliance necessary for 14 to 19, inclusive. Is exposed to 1 all kinds of weather. 1 i i [ • Sample Card No. 5 Construction man Advertising signs JOB OCCUPATION Open to: Novice. Wage: 50 to 75 cents per hour. Job is in; Specialty. Seasonal: Yes. Employ: Male. Remarks; “Yes,” for handicaps 6, 26. “Yes,” with reservations for handicaps 11, 12, 23. Thumb and two fingers required to grasp materials and tools. In case of 23 depends on degree of disability, as four men work together in carrying parts of signs. 58 FEDERAL BOARD FOR VOCATIONAL EDUCATION Sample Card No. 6 Gas and oil service man Auto service JOB Open to: Novice. Wage: 30 to 40 cents per hour. Seasonal: Yes. OCCUPATION Job is in: Specialty. Employ: Male. (( ' Remarks: 'Yes,” for handicaps 5, 13, 23, 24, 25, 26. ‘Yes,” with reservations for handicaps 11, 12, 14, 15, 16, 17. Thumb and one finger required for 11 and 12. Artificial appliance necessary for 14, 15, 16, 17. Job found only in large oil station. Else¬ where combined with other jobs. Sample Card No. 7 Grease man Auto service JOB OCCUPATION Open to: Novice. Wage: 30 to 40 cents per hour. Job is in: Specialty. Seasonal: Yes. Employ: Male. Remarks: “Yes,” for handicaps 5, 6, 7, 8, 13, 25, 26. “Yes,” with reservations for handicaps 11, 12, 14, 15, 16, 17, 18, 19. Thumb and first two fingers necessary for 11 and 12. Artificial appli- ance necessary for 14 to 19, inclusive. This analysis applies only to highly specialized stations where one man gives virtually all of his time to this job. • EMPLOYMENT OF HANDICAPPED PERSONS 59 Sample Card No. 8 Wash-rack man Auto service JOB OCCUPATION Open to: Novice. Wage: 40 to 50 cents per hour. Seasonal: Yes. Job is in: Specialty. Employ: Male. Remarks: “Yes,” for handicaps 6, 7, 8, 13, 23, 25, 26. “Yes,” with reservations for handicaps 11, 12, 14, 15, 18, 19. Thumb and first two fingers required for 11 and 12. Artificial appli¬ ance necessary for 14, 15, 18, 19. Job found only in large oil stations. Elsewhere combined with other jobs. Sample Card No. 9 i Oven man Baking JOB ‘ OCCUPATION Open to: Trained. Wage: $35 to $40 per week. Seasonal: No. Experienced. Job is in: Trade. Employ: Male. Remarks: “Yes,” for handicaps 6, 7, 8, 13, 23, 26. “Yes,” with reservations for handicaps 1, 2, 11, 12, 14, 15. Thumb and two fingers required on one hand. Artificial appliances necessary for 1, 2, 14, 15. 60 FEDERAL BOARD FOR VOCATIONAL EDUCATION Sample Card No. 10 Pan greaser Baking JOB OCCUPATION Open to: Novice. Wage: $15 to $18 per week. Seasonal: No. Job is in: Trade. Remarks: “Yes,” for handicaps 6, 7, 8, 13, 23, 26. “Yes,” vdth reservations for handicaps 1, 2, 11, 12, 14, 15, 16, 17, 21, 25. Thumb and two fingers required for grip. Artificial apphances necessary for 1, 2, 14 to 17, inclusive, 21. In case of 25 depends on degree of disability. Sample Card No. 11 ' Bottling-machine operator Bottling JOB OCCUPATION Open to: Novice. Wage: $30 to $35 per week. Job is in: Specialty. Seasonal: Yes. Employ: Male. Remarks: “Yes,” for handicaps 5, 6, 7, 8, 13, 23, 24, 25, 26. “Yes,” with reservations for handicaps 11, 12, 14, 15, 16, 17, 18, 19. Thumb and three fingers required. Artificial apphance for 14 to 19, inclusive. Must have one good leg. In case of 24 might be barred because w’ork in small plants is done on wet fioors. EMPLOYMENT OF HANDICAPPED PERSONS 61 Sample Card No. 12 Caser Bottling JOB OCCUPATION Open to: Novice. Wage: $30 to $35 per week. Job is in: Specialty. Seasonal: Yes. Employ: Male. Remarks: “Yes/’ for handicaps 6, 7, 8, 23, 24, 26. “Yes,” with reservations for handicaps 14 and 15. Artificial appliance necessary for 14 and 15. Must have one good leg. In case of 24 might be barred because work in small plants is done on wet floors. Sample Card No. 13 Labeling machine operator Bottling JOB OCCUPATION Open to: Novice. Wage: $30 to $35 per week. Job is in: Specialty. Seasonal: Yes. Employ: Male. Remarks: “Yes,” for handicaps 6, 7, 8, 23, 24, 26. “Yes,” with reservations for handicaps 11, 12, 14. Thumb and first two fingers required for right hand. Thumb and first three fingers required for left hand. Artificial appliance necessary for 14. Must have one good leg. In case of 24 might be barred be- cause work is done on wet floors in small plants. 62 FEDERAL BOARD FOR VOCATIONAL EDUCATION Sample Card No. 14 Candy maker Candy making JOB OCCUPATION Open to; Trained. Wage: 50 to 60 cents per hour. Seasonal: Yes. Experienced. Job is in: Specialty. Employ: Male. Remarks; “Yes,” for handicaps 6, 23, 26. “Yes,” with reservations for handicaps 11, 12. Thumb and first two fingers required to grasp tools. Continuous standing and walking. Heavy hfting and carrying. Sample Card No. 15 Packer Candy making JOB OCCUPATION Open to: Novice. Wage: 25 to 30 cents per hour. Job is in: Specialty. Seasonal: Yes. Employ: Female. Remarks: “Yes,” for handicaps 6, 7, 8, 23, 26. “Yes,” with reservations for handicaps 11, 12, 14, 15. Thumb and first finger required for 11. Thumb and two fingers required for 12. Artificial appliances necessary for 14, 15. Constant standing. Continuous arm movements and bending. EMPLOYMENT OF HANDICAPPED PERSONS 63 Sample Card No. 16 STANDARD HANDICAPS The numbers in this file which describe handicaps are the same numbers with the corresponding handicaps given below; 1. Arm, right, off below elbow. 2. Arm, left, off below elbow. 3. Arm, right, disabled. 4. Arm, left, disabled. 5. Cardiac. 6. Deafness, partial. 7. Deafness, total. 8. Deaf-mute. 9. Hand, right, disabled. 10. Hand, left, disabled. 11. Hand, right, mutilated. 12. Hand, left, mutilated. 13. Hernia. 14. Leg, right, off below knee. 15. Leg, left, off below knee. 16. Leg, right, off above knee. 17. Leg, left, off above knee. 18. Leg, right, disabled. 19. Leg, left, disabled. 20. Legs, both, disabled. 21. Legs, both, off below knee. 22. Legs, both, off above knee. 23. Leg, one shorter than the other. 24. Tuberculosis, arrested pulmonary. 25. Varicose veins. 26. Vision, one eye. 27. Arm, right, off above elbow. 28. Arm, left, off above elbow. Sample Card No, 17 The survey returned the answer Copy holder. Decorator. Elevator operator. Enlarger (kodak). Head wrap checker. Information clerk. Modeler. Nursery attendant. H-1 “Yes,” for handicap 1 on these jobs: Print developer. Proof reader. Retoucher. Runner. Scrap picker. Teacher (commercial). Teacher (high school). Watchman. 64 FEDERAL BOARD FOR VOCATIONAL EDUCATION Sample Card No. 18 H-1 The survey returned the answer “Yes; with reservations,” for handi- cap 1 on these jobs: Advertisement copy writer. Bookkeeper—ledger. Apprentice operator. Bookkeeper—statement clerk. Artist. Butter maker. Assistant foreman. Card writer. Assistant manager. Chainman. Assistant operator. Checker (drafting). Automatic gang drill operator. Checker (surveying). Battery changer. Chief operator. Barn foreman. Chocolate maker. Bill deliverer. Cleaner. Blue printer. Clerk. ' Blower-room wiper. Computer. Bookkeeper—general. Customers’ cloak-room attendant. Bookkeeper—journal. 1 • Sample Card No. 19 H-3 The survey returned the answer “Yes,” for handicap 3 on these jobs: Copy holder. Print developer. Decorator. Proof reader. Enlarger (kodak). Retoucher. Head wrap checker. Runner. Information clerk. Scrap picker. Inspector. Superintendent of service. Messenger. Teacher (commercial school). Modeler. Teacher (high school). Night watchman. Watchman (biscuit, cracker). Nursery attendant. Watchman (railroad shop). Painter, rough. EMPLOYMENT OF HANDICAPPED PERSONS 65 Sample Card No. 20 The survey returned the answer on these jobs: Apprentice operator. Artist. Assistant foreman. Assistant manager. Assistant operator. Automatic gang drill operator. Barn foreman. Battery changer. Blower room wiper. Blueprinter. Buttermaker. Cardwriter. Chainman. Checker. Yes; with reservations,” for handicap 3 Checker, kitchen. Cleaner. Clerk. Chief operator. Computer. Customers’ cloak-room attendant. Designer. Detailer. Draftsman. Elevator foreman. Elevator operator (flour). Elevator operator (linseed products). Elevator starter. Employees’ cloak-room attendant. H-3 % Sample Card No. 21 H-7 The survey returned the answer Yes, for handicap 7 on these jobs: Acetylene welder (auto wagon body manufacturing). Acid man. Actuating lever assembler and ad¬ juster. Adjuster (heat regulator). Air-brush painter. Aquastat adjuster. Aquastat adjuster (under heat). Aquastat inner-tube builder. Arbor press operator. Arm sander operator. Arm upholsterer. Armature rewinder. Armature winder. Artist. Assembler (artificial limb manufac- ; turing). i Assembler (garment manufactur- ! ing). Assembler (radio manufacturing). Assembler (sheet metal). Assembler and binder (novelty photo engraver). Assembler, control (burglar alarm manufacturing). Assembler, A. H. Department (bur¬ glar alarm manufacturing). 66 FEDERAL BOARD FOR VOCATIONAL EDUCATION Sample Card No. 22 H-7 The survey returned the answer for these jobs: Advertising packer. Air brush and card beveler. Arc welder. Arc welder helper. Armature core adjuster (relay as sembling department). Armature pin fitter. Asbestos worker. Baker (fancy). Band-saw operator. Batch mixer (rug manufacturing). Bead stringer. “Yes; with reservations,” for handicap 7 Beemer (machine operator). Bench-drill operator. Bench repair man. Bench-lathe operator. Bench worker (heavy). Bench worker (light). Ben dayman. Binding-machine operator. Blade ‘attacher. Bottle washer. Bottle labeler (hand). Sample Card No. 23 H-14 The survey returned the answer Bench machinist. Chocolate dipper. Computer. Counter. Cylinder pressman. Dead-stone man. Draftsman. Dump boy or man. Eccentric benchman. Hand compositor. Labeler. Linotype operator. Monotype keyboard operator. “Yes,” for handicap 14 on these jobs: Nutter. Print developer. Printer. Printer typesetter. Proof reader. Retoucher. Rivet heater. Rod benchman. Sorter. Stoneman. Tube cashier. Watchman. EMPLOYMENT OF HANDICAPPED PERSONS 67 Sample Card No. 24 H -14 The survey returned the answer “ 14 on these jobs: Yes; with reservations,” for handicap Acetylene welder (auto, wagon Air brusher. body). Air brusher and card beveler. Acetylene welder (sheet metal man- Air man. ufacturing). Alarm tester. Acid clerk. Annealing machine operator. Acid man. Apprentice (cash register). Actuating lever assembler. Apprentice (jewelry manufacturing). Adjuster (Burroughs). Apprentice (metal spinner). Adjuster (cash register). Apprentice (stamp and stencil). Adjuster (heat regulator). Aquastat adjuster. j Adjuster and repairer. Aquastat adjuster (under heat). I Advertising copy writer. Aquastat inner tube builder. Advertising packer. Air-brushpainter. Arbor press operator. 1 Sample Card No. 25 The survey returned the H-16 answer “Yes,” for handicap 16 on these jobs: Checker. Linotype operator. Chocolate dipper. Monotype keyboard operator. Computer. Nutter. Cylinder pressman. Print developer. Dead-stone man. Printer. Draftsman. Printer typesetter. Dump boy or man. Proof reader. Food controller. Retoucher. Hand compositor. Tube cashier. Labeler. Watchman. 68 FEDERAL BOARD FOR VOCATIONAL EDUCATION Sample Card No. 26 H- -16 The survey returned the answer “ 16 on these jobs: Yes; with Reservation,” for handicap Acetylene welder (auto, wagon Aquastat adjuster. body). Aquastat adjuster (under heat). Acetylene welder (sheet metal). Aquastat inner-tube builder. Acid man. Arbor press operator. Actuating lever assembler and ad- Arc welder. juster. Armature core adjuster. Adjuster. Armature lamination assembler. Advertising packer. Armature pin fitter. Advertising copy w'riter. Armature rewinder. Air brusher. Armature winder (electrical, ad- Air brusher and card beveler. vanced). Alarm tester. Annealing machine operator. Armature winder (electrical, simple). i i 1 I Sample Card No. 27 H- -21 The survey returned the answer “Yes,” for handicap 21 on these jobs: Assembler. Linotype operator. Bench machinist. Monotype keyboard operator. Chocolate dipper. Holder. Computer. Nutter. Copyholder. Print developer. Draftsman. Proof reader. Elevator operator. Retoucher. Finisher. Shank maker. Labeler. Stencil cutter. Leather worker. Tube cashier. EMPLOYMENT OF HANDICAPPED PERSONS 69 Sample Card No. 28 H-21 The survey returned the answer “ Yes, with reservation, ” for handicap 21 on these jobs; Acetylene welder. Assembler. Addressograph operator. Assembler (electrical parts). Adjuster. Assembler and binder. Advertising copy writer. Attachment installer. Air brusher. Automatic drill press operator. Aquastat adjuster. Automatic drill and T. M. operator. Arbor press operator. Base assembler. Arc welder. Bead stringer (department store). Armature core adjuster. Bead stringer (heat regulator). Armature lamination assembler. Bead stringer (rubber). Armature pin fitter. Beader machine operator. Armature winder and machinist. Bearing setter. Artist (advertising signs). Bench drill operator. Artist (department store). Ben dayman. Sample Card No. 29 The survey returned the answer Addressograph operator. Adjuster (Burroughs). •Adjuster (cash register). Adjuster (heat regulator). Adjuster (optical goods). Adjuster and repairer. Advertising copy writer. Advertising packer. Acetylene welder. Actuating lever assembler and ad juster. Annealing machine operator. Apprentice (cash register). Apprentice (jewelry). H-24 “Yes/’ for handicap 24 on these jobs: Apprentice (railroad car repairman), Apprentice (stamp, stencil). Apprentice operator. Apprentice switchboard operator. Aquastat adjuster. Arbor press operator. Arc and street light shop repairer. Arm upholsterer. Armature lamination assembler. Armature core adjuster. Armature pin fitter. Armature rewinder. Armature winder. Armature winder and machinist. 70 FEDERAL BOARD FOR VOCATIONAL EDUCATION Sample Card No. 30 H-24 The survey returned the answer “Yes; with reservation/’ for handicap 24 on these jobs: Carpenter (gas manufacturing). Carpenter (hotel). Cashier (hotel). Cast maker. Check clerk. Check-room girl. Chemist. Chief clerk. Chief engineer (gas manufacturing). Chief engineer (hotel). Cleaner and oiler. Coat, hand sewer. Coat maker. Collar ironer. Alarm tester. Armature winder. Assembler A. H. department. Assistant engineer. Bell boy. Bench machinist. Blender. Bolter. Bookkeeper. Bronze fitter. Bushelman. Cabinetmaker. Calker. Carpenter (dairy). EXHIBITS FROM FILES NOS. 2 AND 1 No. 1.—List of standard handicaps with corresponding identification numbers- No. 2.—Sample card (gray) from file No. 2, used for recording data on a specific job. Nos. 3, 4, 5.—Selected job cards from “advertising signs” occupation. Nos. 6, 7, 8.—Selected job cards from “auto service” occupation. Nos. 9, 10.—Selected job cards from “baking” occupation. Nos. 11, 12, 13.—Selected job cards from “bottling” occupation. Nos. 14, 15—Selected job cards from “candy making” occupation. No. 16.—List of standard handicaps with corresponding identification numbers.. No. 17.—Card (green) from file No. 1 showing jobs which can be done without condition by persons with handicap H-1. No. 18.—Card (orange) from file No. 1 showing jobs which persons with handi¬ cap H-1 can dto with reservations. Nos. 19-30, inclusive.—Sample green and orange cards from file No. 1. APPENDIX A STAFF OF SURVEY The survey was conducted under the auspices of the Children’s Aid Society. Its treasurer, Mr. W. P. Christian, was disbursing officer for all funds expended by the survey. The follovdng individuals comprised the survey staff: Director: Dr. Charles A. Prosser, director of the William Hood Dun woody Industrial Institute. Survey specialist and general consultant: Dr. Charles R. Allen, educational consultant, Federal Board for Vocational Education. Rehabilitation specialist: R. V. Billington, agent. Federal Board for Voca¬ tional Education. Chief clerk: Miss Freda Prosser, who was given leave of absence by the Family Welfare Association to direct the office work. The regular field staff consisted of: J. W. Curtis, W. A. Ziegler, C. B. Bressler, R. R. Griffith, C. A. Zupann, and Margaret M. Thompson. 71 APPENDIX B COOPERATING AGENCIES AND INDIVIDUALS It is almost impossible to catalogue here the names of all the co¬ operating individuals and agencies who rendered indispensable help in a wide variety of ways to the work of the survey. Only a partial list is possible. 1. Proprietors, managers, superintendents, foremen, assistant foremen, and even individual employees of the concerns studied. 2. Mr. Lloyd M. MacAloon, manager of the Citizens Alliance Free Employ¬ ment Bureau, of Minneapolis. 3. The Hennepin County Tuberculosis Association, including Miss Kathryne M. Radebaugh, director, and her staff. 4. The medical experts in tuberculosis who checked the findings of the survey on arrested tuberculosis as a handicap. 5. The medical experts on cardiac trouble who checked the findings on that handicap. 6. Mr. A. E. Schoettler of the vocational advisement department of the Minne" apolis public schools. 7. Mr. L. C. Helm, instructor of engineers and firemen of the Minneapolis public schools. 8. Miss Elizabeth Fish and the staff of the Girls’ Vocational High School, of Minneapolis. 9. Mrs. M. S. Strubel, secretary of the Minneapolis Civil Service Commission. 10. Helen L. Bridges, Janet I. Muncy, Clara M. Murray, Adolph Sohn, and Ned Van Wambeke for exceptional clerical services. 11. Mr. Dwight Bell, mill superintendent, Washburn Crosby Co. 12. Mr. J. A. Powers, personnel manager for the Pillsbury Mills. 13. Mr. E. L. Bergquist and the staff of the American Business College. 14. Mr. W. S. Morse, president of the Northwestern Hotel Owners’ Asso¬ ciation. 15. Mr. W. E. Parmeter, personnel superintendent of the Dayton Store. 16. Mr. A. A. Schaal, technical director. Biscuit and Cracker Manufacturers’ Association of America. 17. Mr. James S. Lincoln, of the Minneapolis Civic and Commerce Association. Had it not been for the aid rendered by these cooperating indi¬ viduals and agencies, the work accomplished by the survey would have been practically impossible. Individuals gave their time freely and at no cost to the survey. Agencies proved themselves equally ready to give assistance whenever that assistance would be of service. It would be impossible to make too strong a statement, not only re¬ garding the service rendered by these individuals and these agencies, but regarding the cooperative spirit shown and the interest in the objectives of the survey which lay behind the manifold services rendered. 72 APPENDIX C THE CASE OF THE SKILLED TRADES In the case of the so-called skilled trades, it was found possible to secure adequate information, either from members of the survey group or from cooperating individuals, so that it was unnecessary to send field agents out to make studies of these trades. In the study of the skilled trades, many members of the faculty of Dunwoody Institute rendered a very great service which should be fully and gratefully acknowledged. The members of this faculty who rendered such service are— R. T. Craigo, assistant director. R. J. Affolter, printing department. L. H. Billey, automobile department. A. R. Blomquist, building construc¬ tion department. L. R. Drinkall, electrical department. V. G. Eck, printing department. A. F. Gerhard, baking department. W. B. Grothen, machine shop depart¬ ment. L. C. Gerber, automobile department. H. F. Hinton, electrical department. B. F. Kulkey, tilesetting department. Miss Marie Meland, secretary to Doc¬ tor Prosser. J. R. Peterson, building construction department. W. B. Pharis, automobile department. H. J. Pierson, general shops depart¬ ment. L. I. Porter, printing department. W. F. Sahlin, machine shop depart¬ ment. O. W. Timpte, electrical department. P. S. Van Wyck, machine shop depart¬ ment. W. C. Westby, highway construction and surveying department. J. W. Wrobbel, baking department. F. J. Landon, printing department. The wide trade experience of these men and the extent and charac¬ ter of their occupational contacts made it comparatively easy to analyze the skilled trades in a rapid and reliable manner—an accom¬ plishment which would have been extremely difficult otherwise. 73 APPENDIX D EMPLOYMENT POSSIBILITIES FOR HANDICAPPED PEOPLE Table 1. —Number of employment possibilities for specific handicaps out of 2,515 jobs studied in Minneapolis Handicaps Number of Total jobs smployment possibilities 1 I “Yes with “Yes” jobs reserva- i tions” jobs Percentage of total jobs Total- -- ___ - - _ 28, 573 13,847 14, 726 1.‘ Arm, right, off below elbow .. 169 16 153 6.7 2. Arm, left, off below elbow .. .. 169 17 152 6.7 3. Arm, right, disabled ... 105 i 23 82 4.2 4. Arm, left, disabled___ no 24 86 4.4 5. Cardiac. _ 1, 552 1, 435 117 61.7 6. Deafness, partial_ _ . 1, 988 1,945 43 79.0 7. Deafness, total__ . . . __ 1,018 795 223 40.5 8. Deaf-mute__ . _ 943 745 198 37.5 9. Hand, right, disabled. __ _ 117 32 85 4.7 10. Hand, left, disabled_ . _ 125 34 91 5.0 11. Hand, right, mutilated_ _ 2,278 18 2,260 90.6 12. Hand, left, mutilated.._...__ .. 2,294 18 2,276 91.2 13. Hernia.. _____ . 1, 597 1, 252 345 63.5 14. Leg, right, off below knee ___ 1, 823 25 1, 798 72.5 15. Leg, left, off below knee_ _ .. 1, 829 25 1,804 ■ 72.7 16. Leg, right, off above knee.._ . __ 937 20 917 37.3 17. Leg, left, off above knee_ _ 957 21 936 38.1 18. Leg, right, disabled. _ _ 960 56 904 38.2 19. Leg, left, disabled. _ .. . . _ 992 58 934 39.4 20. Legs, both, disabled.. _ .. _ 101 23 78 4.0 21. Legs, both, off below knee___ . 472 20 452 18.8 22. Legs, both, off above knee___ 46 10 36 1.8 23. Leg, one shorter than the other... __ 2,444 2,304 140 97.2 24. Tuberculosis, arrested pulmonary__ 1, 550 1, 344 206 61.6 25. Varicose veins. ____ . - 1,792 1, 553 239 71.3 26. Vision, one eye_ 2,083 2,006 77 82.8 27. Arm, right, off above elbow_ __ 60 13 47 2.4 28. Arm, left, off above elbow_ _ 62 15 47 2.5 74 EMPLOYMENT OF HANDICAPPED PEESONS 75 Table 2. —Distribution of employment possibilities for specific handicaps as between regular and seasonal employment Handicaps Regular employment Seasonal employment Number Per cent Number Per cent Total_ _ 23,865 4,708 1. Ann, right, off below elbow_ 128 5.1 41 1.6 2. Arm, left, off below elbow. . . ... _ 130 5.2 39 1.6 3. Arm, right, disabled___ _ 87 3.5 18 .7 4. Arm, left, disabled_ _ 88 3.5 22 .9 5. Cardiac_ . ___ 1, 322 52.6 230 9.1 6. Deafness, partial_ _ 1,604 63.8 384 15.3 7. Deafness, total. . ____ 800 31.8 218 8.7 8. Deafmute_ __ 750 29.8 193 7.7 9. Hand, right, disabled__ 98 3.9 19 .8 10. Hand, left, disabled___ 99 3.9 26 1.0 11. Hand, right, mutilated___ _ 1, 899 75.5 379 15.1 12. Hand, left, mutilated_ . . 1,904 75.7 390 15.4 13. Hernia___ 1, 365 54.3 232 9.2 14. Leg, right, off below knee___ . _ 1,504 59.8 319 12.7 15. Leg, left, off below knee__ __ 1,511 60.1 318 12.6 16. Leg, right, off above knee_ I 803 31.9 134 5.3 17. Leg, left, off above knee__ .. _ 822 32.7 135 5.4 18. Leg, right, disabled___ . __ 821 32.6 139 5.5 19. Leg, left, disabled___ 850 33.8 142 5.6 20. Legs, both, disabled_ . 85 3.4 16 .6 21. Legs, both, off below knee_ _ 423 16.8 49 2.0 22. Legs, both, off above knee_ - ... 40 1.6 6 .2 23. Leg, one shorter than the other_ 2,032 80.8 412 16.4 24. Tuberculosis, arrested pulmonary_ 1,311 52.1 239 9.5 25. Varicose veins___ _ 1, 567 62.3 225 8.9 26. Vision, one eye_ _ 1,721 68.4 362 14.4 27. Arm, right, off above elbow__ . 50 2.0 10 .4 28. Arm, left, off above elbow_ 51 2.0 11 .4 76 FEDERAL BOARD FOR VOCATIONAL EDUCATION Table 3.' —Distribution of possibilities of employment for handicapped people as between general ^ or specialized ^ jobs Handicaps General General- Specialized Trade Trade- Specialized Specialized Num¬ ber Per cent Num¬ ber Per cent Num¬ ber Per cent Num¬ ber Per cent Num¬ ber Per cent Total--__ 1,618 605 3,237 3,673 19,440 1. Arm, right, off below elbow_ 15 0.6 2 0.07 44 1.7 15 0.6 93 3.7 2. Arm, left, off below elbow.. 15 .6 2 .07 45 1.8 15 .6 92 3.7 3. Arm, right, disabled__ 14 .6 0 0.0 28 1.1 14 .6 49 1.9 4. Arm, left, disabled_ 13 .5 2 .07 28 1.1 15 .6 52 2.1 5. Cardiac__ 83 3.3 36 1.4 170 6.8 237 9.4 1,026 40.8 6. Deafness, partial_ 62 2.4 51 2.0 210 8.3 214 8.4 1,451 57.7 7. Deafness, total_ 12 .5 36 1.4 119 4.7 58 2.3 793 31.5 8. Deaf-mute___ 12 .5 35 1.4 113 4.5 54 2.1 729 29.0 9. Hand, right, disabled_ 15 .6 0 0.0 32 1.3 14 .6 56 2.2 10. Hand, left, disabled.. 16 .6 3 . 1 32 1.3 14 .6 60 2.4 11. Hand, right, mutilated_ 137 5.4 42 1.7 220 8.7 • 397 15.8 1,482 58.9 12. Hand, left, mutilated___ 136 5.4 41 1.6 217 8.6 408 16.2 1,492 59.3 13. Hernia_ 98 3.9 35 1.4 176 7.0 254 10.1 1,034 41.1 14. Leg, right, off below knee.. 102 4.1 44 1.7 198 7.9 198 7.9 1, 281 50.9 15. Leg, left, off below knee_ 102 4.1 44 1.7 204 8.1 202 8.0 1,277 50.8 16. Leg, right, off above knee.. 47 1.9 15 .6 133 5.3 40 1.6 702 27.9 17. Leg, left, off above knee_ 46 1.8 14 .6 134 5.3 40 1.6 723 28.7 18. Leg, right, disabled.. 60 2.4 27 1.1 109 4.3 66 2.6 698 27.8 19. Leg, left, disabled.. 60 2.4 27 1.1 no 4.4 68 2.7 727 28.9 20. Legs, both, disabled... 17 .7 0 0.0 14 .6 14 .6 56 2.2 21. Legs, both, off below knee_ 20 .8 0 0.0 64 2.5 17 .7 371 14.8 22, Legs, both, ofl above knee.. 2 .07 0 0.0 17 .7 1 .04 26 1.0 23, Leg, one shorter than the other_ 147 5.8 55 2.2 239 9.5 423 16.8 1. 580 62.8 24. Tuberculosis, arrested pulmonary.. 93 3.7 36 1.4 163 6.5 236 9.4 1,022 40.6 25. Varicose veins.. 121 4.8 16 .6 179 i 7.1 354 '14.1 1,122 44.6 26. Vision, 1 eye____ 153 6.1 42 1.7 203 8.1 297 11.8 1,388 55.2 27. Arm, right, off above elbow_ 10 .4 0 0.0 18 i -7 4 .15 28 1.1 28. Arm, left, off above elbow.. 10 .4 0 0.0 ! 18 1 -7 4 .15 30 1,2 1 General means that the occupation consists of jobs in which the work is not specialized, but requires the performance of a considerable number of activities (or processes). * Specialized means that the occupation consists of a number of specialized jobs in which a distinct worker does one of a number of distinct processes required to finish the product. EMPLOYMENT OF HANDICAPPED PERSONS 77 Table 4. —Distribution of employment possibilities for specific handicaps as between novice jobs, and jobs requiring special training or previous experience or both Standard handicaps Total Number of novice ; jobs Number of jobs re¬ quiring training or experience, or both Total_ 28,573 17, 749 11, 824 1. Arm, right, off below elbow_ 169 87 82 2. Arm, left, off below elbow__ 169 87 82 3. Arm, right, disabled___ 105 41 64 4. Arm, left, disabled__ . 110 42 68 5. Cardiac. _ .. _ 1, 552 1, 988 1,018 943 904 648 6. Deafness, partial_ i 1,081 678 907 7. Deafness, total__ 340 8. Deaf mute_ . . . . ___ 647 296 9. Hand, right, disabled_ 117 47 70 10. Hand, left, disabled_ _ 125 48 77 11. Hand, right, mutilated_ 2,278 2,294 1,597 1,823 1,829 1,290 1,294 947 988 12. Hand, left, mutilated_ 1,000 13. Hernia______ 650 14. Leg, right, off below knee_ _ 1, 050 1,048 643 773 15. Leg, left, off below knee_ 781 16. Leg, right, off above knee_ _ 937 ' 294 17. Leg, left, off above knee_ 957 657 300 18. Leg, right, disabled_ 960 631 329 19. Leg, left, disabled____ 1 992 647 345 20. Legs, both, disabled_ 101 53 48 21. Legs, both, off below knee. _ 472 ; 336 136 22. Legs, both, off above knee_ ___ 46 20 26 23. Leg, one shorter than the other_ 2,444 1,550 i 1, 354 1,090 648 24. Tuberculosis, arrested pulmonary_ 902 25. Varicose veins___ 1,792 2,083 ' 60 1,028 1,145 20 764 26. Vision, one eye_ ___ 938 27. Arm, right, off above elbow_ 40 28. Arm, left, off above elbow_.... 62 22 40 78 FEDERAL BOARD FOR VOCATIONAL EDUCATION Table 5. —Number of jobs infields of employment where employment possibilities were found for specific handicaps Handicaps OflBce work Other commercial occupations Manufacturing occupations Yes Yes, with reserva¬ tions Yes Yes, with reserva¬ tions Yes Yes, with reserva¬ tions Total.. 170 188 1,010 1,303 9,458 10,423 1. Aian, right, off below elbow_ 3 5 3 19 8 67 2. Arm, left, off below elbow_ 3 5 3 19 9 66 3. Arm, right, disabled... 3 4 16 9 28 4. Arm, left, disabled____ 3 4 15 10 32 5. Cardiac___ 22 112 7 969 79 6. Deafness, partial_ 13 98 6 1,412 32 7. Deafness, total... 9 3 708 191 8. Deaf-mute_ 9 2 669 169 9. Hand, right, disabled_ 3 8 16 10 34 10. Hand, left, disabled_ 3 8 16 12 . 40 11. Hand, right, mutilated-... 3 11 7 196 4 1,493 12. Hand, left, mutilated... 3 11 7 195 4 1,500 13. Hernia__ 20 76 48 823 251 14. Leg, right, off below knee__ 21 3 146 7 1, 303 15. Leg, left, off below knee... . 21 3 147 7 1. 306 16. Leg, right, off above knee__ 20 3 62 7 717 17. Leg, left, off above knee__ 20 3 64 8 734 18. Leg, right, disabled_ 19 20 62 11 721 19. Leg, left, disabled_ 19 20 64 11 749 20. Legs, both, disabled_ 3 9 7 7 59 21. Legs, both, off below knee_ 11 1 37 9 368 22. Legs, both, off above knee_ 2 5 23 23. Leg, one shorter than the other_ 22 164 51 1, 570 79 24. Tuberculosis, arrested pulmonary.. .. 23 108 47 917 110 25. Varicose veins_ 22 147 24 918 182 26. Vision, one eye_ 22 190 19 1, 320 54 27. Arm, right, off above elbow__ 3 2 9 6 18 28. Arm, left, off above elbow__ 3 2 9 8 18 EMPLOYMENT OF HANDICAPPED PERSONS 79 Table 5. —Number of jobs in fields of employment where employment possibilities were'found for specific handicaps —Continued 1 i 1 1 Handicaps Building trades Other mechanical occupations Miscellaneous occu¬ pations Yes Yes, with reserva¬ tions Yes Yes, with reserva¬ tions Yes Yes, with reserva¬ tions Total___ . - 137 227 1,635 1,131 1,437 1,454 !• Arm, right, off below elbow.. _ 5 17 2 40 2- Arm, left, off below elbow... __ 5 17 2 40 3- Arm, right, disabled_ 1 4 4 4 2 30 4. Arm, left, disabled... _ 1 4 4 4 2 31 5. Cardiac__ ... ... 7 3 183 1 164 5 6. Deafness, partial_ 33 1 244 1 145 3 7. Deafness, total_ 9 11 15 1 51 20 8. Deaf-mute_ . 8 9 8 49 20 9. Hand, right, disabled_ . 1 4 7 3 3 28 10. Hand, left, disabled.. _ 1 4 7 3 3 28 11. Hand, right, mutilated. _ 1 38 265 3 257 12. Hand, left, mutilated__ . . 1 36 278 3 256 13. Hernia__ . _ ... . .. 6 4 176 6 151 36 14. Leg, right, off below knee.. 21 4 157 11 150 15. Leg, left, off below knee_ . 21 4 161 11 148 16. Leg, right, off above knee_ 4 1 42 9 72 17. Leg, left, off above knee_ .. 4 1 41 9 73 18. Leg, right, disabled_ . ... . 9 15 55 10 38 19. Leg, left, disabled.. .. _ 9 17 55 10 38 20. Legs, both, disabled_ 3 4 9 21. Legs, both, off below knee.__ .. 5 3 3 7 28 22. Legs, both, off above knee_ 5 11 23. Leg, one shorter than the other. . . . 15 10 288 245 24. Tuberculosis, arrested pulmonary. . 11 5 130 5 155 39 25. Varicose veins__ 6 1 258 202 32 26. Vision, one eye_ 36 2 263 2 175 27. Arm, right, off above elbow_ 4 5 2 11 28. Arm, left, off above elbow_ 4 5 2 11 Note. —The jobs reported in this table are classified according to the dominant occupation of the concern studied. A stockroom man in a department store, for example, is here reported as employed in a job in a commercial occupation. In a manufacturing plant he would be reported as employed in a manufacturing occupation. The total number of such jobs so roughly classified is comparatively small and therefore not suflBcient to vitiate the general trend of the data for the different handicaps. PUBLICATIONS OF THE FEDERAL BOARD FOR VOCA¬ TIONAL EDUCATION RELATING TO VOCATIONAL REHABILITATION ' ANNUAL REPORTS TO CONGRESS 1919, 1920, 1921, 1922, 1923, 1924, 1925, 1926, 1927, 1928. CONFERENCE REPORTS Report of Proceedings of the First National Conference on Vocational Rehabilitation of Persons Disabled in Industry or Otherwise, St. Louis, Mo., May 15, 16, 17, 1922. BULLETINS 64. Industrial Rehabilitation—General Administration and Case Procedure. 1921. 70. Industrial Rehabilitation—Services of Advisement and Cooperation. 1921. 76. Vocational Rehabilitation and Workmen’s Compensation—Interrelation of the Programs of Voca¬ tional Rehabilitation and Workmen’s Compensation. 1922. 80. Vocational Rehabilitation—Its Purpose, Scope, and Methods, with Illustrative Cases. 1923. On sale by Superintendent of Documents, Government Printing Office. Price, lOc. 93. Proceedings of the National Conference on Vocational Rehabilitation of Civilian Disabled. Wash¬ ington, D. C., February 4-8,1924. On sale by Superintendent of Documents, Government Printing Office. Price, 20c. 96. A Study of Occupations at which 6,097 Physically Disabled Persons are Employed After Being Voca¬ tionally Rehabilitated. 1925. On sale by Superintendent of Documents, Government Printing Office. Price, 10c. 104. Proceedings of the National Conference on Vocational Rehabilitation of the Disabled Civilian. Cleve¬ land, Ohio, September 29-October 2,1925. On sale by Superintendent of Documents, Government Printing Office. Price, 20c. HO. Employment Training in Civilian Vocational Rehabilitation—Definition, Characteristics, and Pos¬ sibilities of Employment Training as a Means of Effecting Rehabilitation of the Physically Disabled. 1926. On sale by Superintendent of Documents, Government Printing Office. Price, 10c. 113. Administration of Civilian Vocational Rehabilitation—A Statement of Policies. 1926. On sale by Superintendent of Documents, Government Printing Office. Price, 10c. 120. Vocational Rehabilitation in the United States—The Evolution, Scope, Organization, and Adminis¬ tration of the Program of Vocational Rehabilitation of Disabled Persons. 1927. On sale by Super¬ intendent of Documents, Government Printing Office. Price, 20c. 121. Proceedings of the Fourth National Conference on Vocational Rehabilitation of the Disabled Civilian. Memphis, Tenn., March 28-31, 1927. On sale by Superintendent of Documents, Government Printing Office. Price, 25c. 126. Workmen’s Compensation Legislation in Relation to Vocational Rehabilitation—An Analysis of Certain Provisions of Workmen’s Compensation Laws Showing Their Relation to the Administra¬ tion of Vocational Rehabilitation of Disabled Person. 1927. On sale by Superintendent of Docu¬ ments, Government Printing Office. Price, 25c. 132. A Study of Rehabilitated Persons—A Statistical Analysis of the Rehabilitation of 6,391 Disabled Persons. 1928. On sale by Superintendent of Documents, Government Printing Office. Price, 10c. 133. Vocational Rehabilitation of the Disabled—Salient Facts. 1928. On sale by Superintendent of Doc¬ uments, Government Printing Office. Price, 5c. 136. Proceedings of the Fifth National Conference on Vocational Rehabilitation of Disabled Persons. Milwaukee, Wis., September 26-28, 1928. On sale by Superintendent of Documents, Government Printing Office. Price, 35c. 146. Report of Study Possibilities of Employment of Handicapped Persons in Minneapolis, Minn. A Report of Methods Followed in Making the Investigation and of the Essential General Findings of the Survey. 1930. On sale by the Superintendent of Documents, Government Printing Office. Price, 15c. MONOGRAPHS 1. The Civilian Vocational Rehabilitation Program in Minnesota. 1925. On sale by Supermtendent of Documents, Government Printing Office. Price, 5c. 1 A complete list of available publications relating to the work of other services of the Federal Board for Vocational Education may be obtained on request. Address Publications Section of the Board. 80 o 4 30 112 062141 418