HISTORY AND FUNCTIONS of the _ CHILDREN'S BUREAU UNITED, STATES DEPARTMENT OF LAaOR September 1, 1944 U. S. DEPARTMENT OF LABOR CHILDREN'S BUREAU WASHINGTON 25 CONTENTS Page Why it was created Why the Children's Bureau was placed in the Department of Labor 1 Early program of the Children!s Bureau 2 Prompting the health of mothers and children Education of parents in infant and child care Technical and scientific studies Development of standards of care Administration of 'grants-in-aid to the States for maternal and child-health services and services to crippled children ...... Progress in reducing maternal and infant mortality Safeguarding child labor and youth employment 10 Discovery of the facts 10 Development of standards 11 Administration of Federal child-labor laws 12 Trends in child-labor and youth employment 13 Work related to social problems and social services 13 ti Discovery of the facts:13 Development of standards 15 Administration of grants-in-aid to the States for child- welfare services 16 Progress in providing social services for children 16 Utilization of advisory services' 17 Special conferences 17 White House Conferences 17 Commission on Children in Wartime 18 Cooperation in international activities How the 'Children's Bureau is org'anized, appropriations 18 Interrelated activities of the divisions of the Children's Bureau 21 Cooperation of the Children's Bureau with other Federal agencies 21 5. 6 7 9 18' U. S. Department of Labor September, 1, 1944 HISTORY AND FUNCTIONS af the CHILDREN'S BUREAU 111Lay It Was Created The Children's Bureau was created by Act of Congress approved by President William Howard Taft, April 9, 1912, after 6 years of effort on the part of churches, national women's organizations, consumers' leagues, child-labor committees, social and health workers, college and university women, and other groups. The proposal for a Children's Bureau was supported by the first White House Conference on the Care of Dependent Children, called by President Theodore Roosevelt in 1909. The first bill to establish a Children's Bureau was introduced by Senator Winthrop Murray Crane of Massachusetts, and the bill which finally passed was introduced by Senator William E, Borah of Idaho. The reasons for the establishment of the Children's Bureau, as given by sponsors of the bills at hearings held by House and Senate committees, were based on the fact that there was then no recognized and authoritative source of information relating to child life and that in the absence of such information many abuses had gone unchecked and communities were left to work out their own problems without being able to learn of and profit by success or failure of other communities along the same lines of endeavor. In a hearing on January 27, 1909, Professor Samuel McCune Lindsay of Columbia University said: Me want a place where the common man can go and get this information, a place that he will think of, the label upon which will be written so large that he can have no doubt in his mind as to where to go to get information relating to the children of the country." The Act cleating the Children's Bureau directed it "to investigate and report upon all matters pertaining to the welfare of children and child life among all classes of our people," and mentioned especially as subjects for investigation infant mortality, the birth rate, orphanage, juvenile courts, desertion, dangerous occupations, accidents and diseases of children, employment, and legislation affecting children in the several States and Territories. The Aistbry of the Children's Bureau shows that it has been active in all these fields. Why the Children's Bureau Was Placed in the Department of Labor The first bill to establish a children's bureau placed it in the Department of the Interior. In hearings before House of Representatives Committee on Labor, May 12, 1911, Representative Peters of Massachusetts said: "At that time (when the first bill was introduced) it was intended to have the bureau made a bureau of the Department of Interior. But it has now been thought better to put it in the Department of Commerce and Labor, because it will be more in line with the general work the Department of Commerce and Labor is undertaking." . Of the three bureaus whose fUnetionswere then considered most closely related to the work of the proposed Children's Bureau, two (the Bureau of Labor and the Bureau of the Census) were in the Department of Commerce and Labor. The third, the Bureau of Education, was then in the Department of Interior. 2 In an article on "The Children's Bureau in Its Niche," published in The Survey, January 24, 1920, Florence Kelley, who with Lillian Wald, founder of Henry Street Settlement, originated the idea of the Children's Bureau said: "Had the bureau in its inception been limited by the outlook either of a department of health or of a department of education-assuming that both of those departments were led by the wisest and most generous of statesmen -- there would of necessity have been lost much of the very fine work of the division. Its activities have traversed many fields and in particular they have thrown great light on the so-called borderland of science, the undefined region which has belonged assuredly to none. Under its present direction in the Department of Labor, the department which par excellence is concerned with broad considerations of human wellbeing, the Bureau has had the untrammeled right freely to serve the Nation. "One of the needs most keenly felt by those who agitated for the establishment of a Federal Children's Bureau was' that of a center of information regarding all the children of the country and regarding the social and economic conditions affecting their welfare. For this reason, the Department of Labor was fittingly selected as the proper place for the Bureau, and under its aegis the Bureau began its many-sided work on the complex problem of child welfare." Early_Progra r of the Children's Bureau A woman, Lillian D. Wald, pioneer in public-health nursing and founder- ofHenry Street Settlement, New York, had first suggested the need for a Federal children's bureau and had worked with Mrs. Florence Kelley, another great pioneer in behalf of children, in securing the establishment of the bureau. A woman was chosen as first Chief of the Children's Bureau, Julia C. Lathrop, who had been associated with Jane Addams of Hull House throughout its history and had established a national reputation as a member of the State Board of Charities of Illinois and as promoter of such important social reforms as the juvenile-court movement. The Children's Bureau was at first in the Department of Commerce and Labor, but in 1913, when the Department of Labor was established, it was transferred to that Department. The first appropriation was $25,640 and the staff consisted of 15 persons, of whom all except the Chief and her private secretary were appointed under Federal Civil service. In her first annual report for the fiscal year 1913 Miss Lathrop defined "the final purpose of the Bureau" as being "to serve all children, to try to work out the standards of care and protection which shall give to every child his fair chance in the world." In her second annual report Miss Lathrop called attention to the close cooperation that had been developed with the United States Bureau of the Census and stated: "Other bureaus of the Government which have to do with children have also wide powers ascribed to them by law. Apparently the best method of securing the highest possible degree of effectiveness is by the joint action of various bureaus havihg common interest in the investigation of a particular subject." During the 9 years in which Julia C. Lathrop was Chief of the Children's .Bureau, from 1912 to 1921, the Bureau's work was established upon a firm foundation of scientific research and dissemination of information to the people of the country. These services were carried on and expanded under the administration of Grace Abbott, from 1921 to 1934, and of Katharine F. Lenroot from 1934 on. The early studies of infant mortality, which placed thajor emphasis on income, housing, employment of the mother, and other factors affecting the infant death rate, were made under the direction of staff which included physicians, social workers, and statisticians. These inquires concerning infant mortality and studies of maternal mortality and maternal and infant care in rural areas, led to the plan for Federal and State cooperation in promoting maternal and infant welfare which was later embodied in the Sheppard-Towner Act of November 23, 1921. Under this act, which was in operation from 1922 until 1929„ 45 States and the Territory of Hawaii were assisted in the development of State and local services for mothers and babies. Evidence gathered by the Children's Bureau of conditions under which, children were employed led to the passage of the first and second Federal Child-Labor Laws, both of which, after short periods in operation, were declared unconstitutional, and to the submission in 1924 of an amendment to the Constitution which would have given Congress the power to enact child-labor legislation, but which was ratified by only 28 of the 36 States necessary for its adoption. Greatly improved standards of State legislation end administration of child labor laws were achieved. Studies of juvenile courts, mothers' aid, illegitimacy, other aspects of dependency and delinquency and mentally deficient children contributed to the development of standards and improved methods of dealing with these problems. It is of interest to review in some detail the mothers' aid movement in relation to the Children's Burecu. The White House Conference on the Care of Dependent Children, called by President Roosevelt in 1909, passed a resolution stating that, "Home life is the highest and finest product of civilization. It is the great molding force of mind and of chatacter. Children should not be deprived of it except for urgent and compelling reasons." It was 2 years, however, before the first State-wide mothers' pension law was passed, in Illinois. At that time the theory was widespread that public relief would nearer be well administre4hat there would be political interference, that it would increase pauperism and that private charities could and should handle relief, This controversy reached its height at the National Conference of Charities and Correction which met in Cleveland in 1912. It vas eventually silenced by the success and popularity of mothers' aid. Miss Lathrop believed that public agencies could and must function effectively if social needs were to be met, She said, "Are we not taking all this in too elderly a fashion? We act as though we were in the afternoon of time, and our methods of progress almost finished, when in fact, we are in the gray dawn of time as to our expression of public responsibility for the care of the young of the state. We are frightened in that gray dawn by the spooks and bogies of the old English poor law. . ." By 1914, 21 States had passed some kind of mothers' aid laws, the forerunner of the aid-to-dependent-children provisions of the Social Security Act. The Children's Bureau undertook to _compile these laws in that year. Until the passage of the Social Security Act in 1935 the Bureau engaged in active promotion of mothers' aid legislation and good standards of administration. From the first the Bureau recognized the importance of making the results of scientific research and practical experience availabla to the, people of_the country in simple, nontechnical language. Popular bulletins on infant tare,. prenatal care, and child care and guidance were widely distributed,. and the Bureau has carried on from the beginning a large correspondence with individual mothers. In the preparation of the first edition of "Prenatal Care" the Bureau . consulted with a large number of .well-known physicians and received special help from Dr. J. Morris Slemons. In the preparation of the first edition of "infant Care" in 1914 the Children's Bureau sought the assistance of Dr. L. Emmett Holt and Dr, Samuel McC. Hamill who gave helpful suggestions especially with respect to the sections on infant feeding. Since 1919 the Children's Bureau has had the active assistance of a committee of pediatricians: Dr. Richard M. Smith of Boston representing American Pediatric Society, Dr. Julius H. Hess of Illinois representing the Section on Diseases of Children of the American Medical Association, Dr. Howard Childs Carpenter of Philadelaia (representing the Ameri-ca*hild Hygiene Association, later the American Child Health Association, until that organization went out of existance), In 1933, at the request of the Children's Bureau, the American Adademy of Pediatrics designated Dr. Samuel McC. Hamill as member of this committee. In 1936 Dr. Hamill was replaced by Dr. J. H. Mason Knox of Baltimore. The Children's Bureau has also had the assistance of a committee of obstetricians to review popular bulletins on maternity care, including Dr. Fred L. Adair, Dr. Robert L. DeNormandie, and Dr. James R, McCord. All popular bulletins on infant, child, or maternal care have been approved by these committees before publication. Cooperation with national women's organizations in popularizing the. knowledge gained through research and field study and stimulating community efforts for child welfare took the form of birth-registration, baby-week, and Children's Year campaigns, followed by the second 'Aaite House conference, the 1919 Conference on Standards of Child Welfare, covering the economic, health, social service, and employment problems of children. Throughout these early activities the work was carried on by means of a coordinated approach to the wide range of health, employment, and social problems of children, in which the professional services of physicians, nurses, social workers, economists, and statisticians were utilized0 Studies of infant mortality, for example, were planned from both theieconor4c and the medical approach; in studies of child labor the professionl experience of physicians, industrial and economic investigators, and social! workers was utilized. Studies of child dependency, delinquency, and mental deficiency took into consideration the health, social and industrial aspects of these problems. From the beginning the Children's Bureau was closely associated with the American Association for the Study and Prevention of Infant Mortality. - In 1912, the Chief of the Children's Bureau was made a member of the Board of Directors of this association. In an .address to the American Association for Study and Prevention of Infant Mortality, made October 2, 1912, Miss Lathrop said: "Some people have been afraid that this Bureau would be some distant automatic sort.of machine.Which would dull local activity and interest in children, and which would override the dignity and the rights of parents This Bureau will be nothing of the kind; it never can be so long as it proceeds 5 in that spirit which recognizes as the most important and precious thing in the world, parental affection and care for a child." 1/ In her last annual report for the fiscal year 1921, Miss Lathrop said: "The great contribution which the establishment of the Children's Bureau made to child-welfare theory and practice was that a unified social, economic, and industrial approach to all problems in this field was, for the first time, made possible, Previous to that time there had been a constant growth of interest in the protection and welfare of child hood, and public and private organizations had been expanding and multiplying. But no agency, State or private, had as yet developed a program embracing all the interests of childhood." In the section on the Children's Bureau included in the Twentieth Annual Report of the Secretary of Labor, for the fiscal year 1932, twenty years after the Children's Bureau had been established, Grace Abbott, second Chief, said: "The Children's Bureau was made an instrument of national leadership and national service by its first chief, Julia C. Lathrop, who directed its activities from 1912 to 1921, and who cherished the Bureau as her fondest interest until her death on April 15 of this year In the spirit of Miss Lathrop's efforts to conserve the Nation's childhood during the war,years, the Children's Bureau has endeavored in a variety of ways, within the limits of its resources9 to serve those who are striving to protect children from the still more devastating effects of unemployment. Without additional appropriations the Bureau hasfreorg4nized its work so as to give chief emphasis to the problems of children affected directly by unemployment. At the same time, it has continued its scientific studies in the fields of child health, child labor, recreation, dependency, and delinquency, and the preparation nnd distribution of popular and scientific bulletins. These activities furnish a continuing basis for maintaining the ground won and for advancing, when possible in the effort to assure fuller opportunity and greater protection to the children of America." In the same report Miss Abbott said: "We must go forward with the whole program for children: 'Protective foods' may be the first requirement, but schools, playgrounds, agencies for preventing delinquency, organizations caring for dependent children in their own homes and outside when necessark, must also he maintained, and, in many in:stances' their resources must be expanded to meet unprecedented needs." PromotinE_the Health of _Mothers nnd_Children education ofparents in infant_and_child care Almost as soon as the Children's Bureau wps established, work was begun on preparation of a series of pamphlets dealing with the home care of young children. No such bulletins had been issued previously by Government agencies. 1/ American Association for Study and Prevention of Infant Mortality, Transactions of the Third Annual Meeting, Cleveland, Ohio, 1912, p. 50. Franklin Printing Co., Baltimore, 1913. Infant Cr re has exce6ded any other Government publication in' sustained.popu-larity. It owes much of its popularity to physicians in private practice, who distribute it to the mothers of infantOzacier their carel and to State, county, and municipal health departments) who use it in their programs of health education. Many other means of reaching parents are used; the Bureau was one of the first Government agencies to carry on a weekly radio program, which was on the air without interruption for many years. Annual celebrations of May-Day--Child Health Day, under Presidential proclamation, serve to 'stimulate general interest in various phases of child health. Technical and scientific studies During its early years the Children's Bureau traced the lives of approximately 23,000 infants, whose mothers freely cooperated in the studies, from birth to their first birthday, if they lived that long, or to their death, if they died under 1 year of age, and studied the various factors which might be held responsible for their death. The published reports of these studies made available for the first time a body of scientific data on the causes of infant mortality. The investigation of infant 'mortality indicated that a large proportion of infant deaths are the _result of 'conditions existing before birth and also that the sickness ord6ath of the.mother after the baby's birth lessens the child's Chance for life and health. The Bureau, therefore, began the collection and interpretation of,Statistics of maternal mortality, including a careful study of every maternal death in 13 States occurring over a 2-year period, and in 2 States over a 1-year period, about 7;500 deaths in-all. The recommendations drafted by the Bul-eau's advisory committee on obstetrics, based on the findings of these studies, provided for leadership, and the setting of standards for maternal care by the medical profession, and for strengthening the education of the general public in regard to the need for and meaning of adequate maternal care. So impressed Were local medical societies by these studies that academies of medicine in New York, Philadelphia, and other cities undertook continuing studies of every maternal death, to try to determine whether it might have been prevented, using schedules similar to those developed by the Children's Bureau. These studies are continuing to the present day, and effecting great improvement in obstetric care. Other important undertakings include studies and.demo4stratiOnS of, of prevention of rickets in infants, studies of infant, nortality and maternal care in certain cities, Ind studies of neonatal mortality. and morbidity, prematurity, and stillbirths, Methods of hospital care of premature and other newborn infants, policies ndopted by industry with reference to conditions of work and provisions for maternity care for women employees who are pregnant, and studies of health problems involved in day-care programs for children whose mothers are employed, all have been the subject of first-hand inquiry by the Children's Bureau. Development of standards _of care Standards of prenatal care, infant feeding, and child-health supervision, developed by the Children's Bureau in Consultation with national authorities in these fields, are embodied in its bulletins for parents and in bulletins and articles for the use of physicians,. nurses, hospital administrators, and administrators of health services. Extension of public-health-nurSing services, child-health conferences, and health _supervision- of infants by physicians in their private offices have furnished increasing opportunity for standards to be translated into practice by mothers under professional guidance. Recommendations concerning standards for maternal and child-health services have been developed by the White House Conferences held every 10 years, special conferences, and the work of advisory committees to the Children's Bureau. Administration of uants:in-aid to the States for maternal -nd chi d-health services and services to cElithildren A plan fornPublic Protection of Maternity and Infancy with Federal .Aid,'!. presented by Miss Lathrop in her fifth annual report, as based upon the principle-of extension of local maternal and child-health services through the leadership and assistance of State health agencies receiving grants of funds from the Federal Government. Thus precedents deveirped extensively in the improvement of agriculture through Federal aid were applied to promotion of the well-being of children, just as the fact-finding functions outlined in the Act of 1912 creating the Children's Bureau had been suggested by similar work-in the Department of Agriculture. In her fifth annual report in 1917, Miss Lathrop recommended that a maternity and infant-welfare program should include public-health nurses available for instruction and service; instruction through schools,.universities, and extension teaching in hygiene for mothers and children; conference centers affording convenient opportunity to secure medical examination of well children and expert advice as to their best development; adequate confinement care; and hospital facilities made available and accessible for mothers and children. This proposal led.to the long struggle for a Federal maternal and child-health program, which resulted first in the passage in November 1921 of the Sheppard-Towner Act, providing grants by the Children's Bureau to State agencies for the protection and welfare of maternity and infancy, an act which was in effect from. 1921 to 1929, and later in the maternal and child-health provisions of title V of the Social Security Act of 1935, as amended in 1939. When the Children's Bureau started its work, no State had in its health department a child-hygiene division or bureau. Stimulated by the Children's Year campaign undertaken the leadership of the Children's Bureau in 1918, and by the discussions of Federal aid to the States in the course of passage of the Maternity and Infancy Act of 1921, 46 States had organized such divisions by the end of 1922. Public-health-nursing services, prenatal and child-health conferences, supervision of midwives, and public education in maternal and-infant care expanded rapidly from 1922 to 1929, vhile the. Maternity and Infancy. Act was in operation, and laid the foundation for the. much greater expansion of maternal and child-health services under the Social Security Act of 1935, whose provisions for maternal and child-health services were based upon facts -assembled by the Children's Bureau and proposals developed through the Bureau's initiative. . Federal administration of maternal and child-health services under title V, part 1, of the Social Security Act is vested in the Children's Bureau. Allotments to the State health departments are made by. the Secretary of Labor on the basis of the ratio of live births in the State to the total live births in the United States, plus a uniform grant to all States. An additional allotment is based on the need of the State for financial assistance in carrying out its State plan. Approval of State plans by the Chief of the Children's Bureau is-based upon the requirements of the act: Financial participation by the official State health agency; administration of plan by State health agency; such methods of administration as are necessary for proper and efficient operation of the plan; submission of required reports to the Secretary of Labor; extension and improvement of local maternal and child-health services; cooperation with medical, nursing, and welfare groups SO and organizations; and provision of demonstration services in--nee y'areas and among groups in special need. The program, for.which an annual Federal appropriation of $5,820,000%for grants to States is now authoiized, is in its ninth-year.-it in operation in the 48 States, the District of Columbia, Hawaii, Alaska; and- Puert6:',Rico,.... Under its stimulation much progress has been made in strefithening-aria,im,-' proving the administrative facilities of the State health departments for carrying on programs of maternal and child health and in developing local services for mothers'and children under'local health department$. Anickg.these local services administered or supervised by State health agencies fq-the. calendar year 1943 were the following: (Figures in round numbers) Prenatal medical care, 146,000 women Prenatal nursing care, 265,000'women Home-delivery nursing care, 13,000 mothers Medical supervision in child-health conferences, 451,000 infants and preschool children Public-health-nursing service, 1,093,000 infants and preschool children Medical examination of school children, 2,124,000 Public-health-nursing service (home and school service), 1,974,000 school childfen Smallpox immunization, 1,695,000 children Diphtheria immunization, 1,227,000 children of whom 43 percent were under 5 years of age Growing out of experience in the materna:Land:child-health program under ,the_Social Security Act, and with special appropriations by Cowes:s; the Children's Biareau administers grants to State health agencies, amounting 'for the fiscal ye'or 1945 to $42,800,000, for free medical,,nursing,and hospital care--the medical care by physiciansTof the wife's own choosing—te the wives and infants of the men in the four lowest pay grades ,of the' armed seTvices, and of Army and Navy aviation cadets. During the fiscal-year, 1945 it is expected that from one-sixth to 'one--fifth of 'all the births in the United States will be reached under this program. Although it has been in operation -only since March 1943 it is an .important factor in.maintaining under wartime conditions, the gains made with respect to maternal and infant,health, State health departments authorize care on the basis of an application Signed by the wife and the attending physician and pay for:services rendered' by:physi' ci.ans, nurses, and liospitals. . By August 1, 1944, care had been authorized for,440,703 wives :and infants. About 44,000 cases per month are now being accepted for.6are. To provide diagnostic, medical, hospital, and after-care services to children who. are crippled or suffering from conditions that:lead to crippling, title.V, .part 2 of the Social Security Act authorizes grants to State crippled dhil-dren's agencies. By an amendment of 1939 the total annual appropriation authorized is $3,870,000, of which $2,870,00 must be matched by State, or State and local, funds. Except for a flat grant of $20,000 to each State the money is allotted on the basis of the number of crippled children in need of care, the cost of furnishing care, and the need of the State for financial assistance in carrying out its plan. The program was incorporated in the Social Security Act on the basis of data and proposals developed by the Children's Bureau. All of the States, Alaska, Hawaii, Puerto Rico, and the District of Columbia are providing services to crippled children under this program. On December 31, 1943 nearly 364,000 crippled children were recorded on State registers of crippled children. In 1943, 82,000 crippled children received orthopedic and other care at clinics under State plans approved by the Children's Bureau, 30,916 received care in hospitals, usually surgical care. Most of these children were suffering from conditions due to infantile paralysis, congenital defects, birth injuries, accidents,'rickets, osteomyelitis, and bone and joint tuberculosis. Included are 2,000 children with rheumatic. fever or heart disease. In administering these programs, attention is given to both the medical and the social needs of the children, and as children reach the age for vocational training they are referred to State vocational-rehabilitation agencies. Since 1939, in accordance with testimony presented at Senate hearings as to the importance of additional funds to extend services to crippled children, 19 States have developed services for children with rheumatic fever as part of the crippled children's program. In 1941 rheumatic fever, which is recognized as the cause of the major part of heart disease in children, killed more school-age,childr,en (5..14 'years) than any other.single disease. Among children of high-school age, also, rheumatic fever represents a serious threat. Progress in reducing maternal and infant mortality When the Children's,Bureau wath established there was no birth registra- tion area in the United States, and it was impossible to tell with accuracy how many babies were born in a _year,* or what proportion of them died. Tith the cooperation of the Children's Bureau, the Bureau of the Census, the General Federation of Women's Clubs, and other agencies, such improvements were made in birth registration that in 1915 the Bureau of the Census established a birth registration area comprising 10 States and the District of Columbia, which by 1933 included all of continental 'United States. Since 1915 the general trend in maternal and infant mortality has been in the direction of a dramatic reduction in both rates. In 1915 for the birth-registration are, 100 babies died under 1 year of age for every thousand born alive. By 1934 the rate had dropped to 60 and by 1942 to 40, or a reduction of 60 percent in 27 years. From 1934 to 1942 a reduction of one-third occurred. The provisional infant mortality rate for 1943 is slightly less than for 1942--39.9 as compared with 40.4. Progress in reducing the mortality of infants 1 month to 1 year of age has been much greater than progress in reducing mortality of infants in the first month, and especially in the first week, of life. Until 1936 practically no progress had been made in reducing deaths of infants under 1 week of age. Since then, a reduction of 19 percent has been made, coincident with the rapid and much greater fall in maternal mortality during the same period. -10 The .deaths of mothers from causes associated with childbirth per 10,000 live.14rths were practically ,the sam. in 1934 as in 1915, though?. the rates had been much higher during'certain of the intervening years; reaching a peak of 91.6 during the influenza year of 1918. The 1915 rate was 60.8, the 1934 rate, 59.3, and the 1942 rate, 25.9, with a drop each year from 1934 to 1942, and an especially rapid decline since 1940. Since 1915 there has been a drop of 57 percent, and since 1934 a drop of 56 percent in the maternal death rate. It is impossible statistically to isolate the factors responsible for the great saving in infant and maternal life that has occurred since the creation of the Children's Bureau. Improvements in sanitation, in the water and milk supply, rising standards of living, and advances in medical knowledge have "'Dem important contributing factors. Medical education including post-graduate instruction, research studies of maternal and infant deaths, development of improved standards of care, education of mothers and extension and strengthening of maternal and child-health services, with the cooperation of State and local public-health agencies, medical societies, and private organizations, have played an important part in the saving of maternal and child 'life. In 1938 a Conference on Better Care for Mothers and Babies called by the Children's Bureau brought together representatives of all of these groups to intensify the effort to bring advancing knowledge actually to bear on the saving of the lives of mothers and infants. Safeguardinfl Child Labor and YouthjimplamEEI Discovery of the facts The Children's Bureau was directed by the act creating to investigate, among other subjects, dangerous occupations, employment, and legislation affecting children in the several States and Territories. It began its work in relation to tiild.labor by the compilation of State child-labor laws and an analysis of available statistics. The State laws of the time resembled a patch-work quilt with many loles. Five States fixed no minimum age foi. general employment. In 6 more States a basic minimum age of 14 yearslaad not been acdepted, and in many other States loopholes and exemptions permitted employment of many children under that age. Regulations of hours and conditions of work for children between 14 and 16 years were exceedingly spotty and fell far short of reasonably adequate standards. In addition to legal analysis, the Children's Bureau undertook studies of the conditions under which children worked in individual cities and in specific occupations and industries. Approximately 60,000 working boys and girls were interviewed so that the Children's Bureau could see through their eyes what child labor meant. Methods of administration of State child-labor laws, with particular emphasis on the employment-certificate system as the basis for enforcement, were studied. In the decade of the 1920's an important series of studies of the work of children in industrialized agriculture--sugar beets, cotton, tobacco truck farming, fruit-picking--was begun. Studies of employment of children in canneries and packing sheds and in street trades were undertaken, as were studies of industrial accidents to minors, in relation to workmen's compensation laws. Testimony submitted to a subcommittee of the Senate Committee on Education and Labor in 1940 summarized the problem of agricultural child labor as follows: 11- "Thus,it is evident that much of the agricultural child labor of today is very different from what it was when children worked mainly for their own parents on the home farm. The work of children in industrialized agriculture is not the educational process of the parent initiating his child into tasks that are an integral part of the traditional farm life. On the contrary, it is a highly commercialized, nearly always hard, repetitive labor characterized by long hours and unsuitable and often hazardous conditions of work and subject to competitive pressure." Studies of special problems of child labor during the depression and recovery periods, and under war conditions have been made. Research basic to the Children's Bureau's responsibilities for hazardous occupations under the Fair Labor Standards Act of 1938 is carried on. Development of standards On the basis of studies of actual conditions of employment and the effectiveness of various types of legislation and enforcement, the Children's Bureau in cooperation with other agencies has developed standards which have been embodied in both Federal and State legislation. Extensive work in developing recommended or advisory standards for the guidance of responsible officials and the information of the public has been carried on, notably in the 1919, 1930, and 1940 White House Conferencesland through the work of advisory committees appointed by the Children's Bureau. Such a committee, appointed in accordance with a recommendation of the 1930 White House Conference on Child-Health and Protection, worked out recommendations concerning protection of minors from employment in hazardous occupations which later afforded a point of departure for the Bureau's work in this field under the Fair Labor Standards Act of 1938. Apprenticeship standards were also worked out, and recommendations concerning programs for unemployed youth during the depression were made. During the war period special attention has been given to the development of policies and standards for wartime employment of youth. This work has been done in cooperation with other Federal agencies, including the Tar Manpower Commission, the United States Office of Education, the Department of Agriculture, the Tear Department, the Navy Department, and the Civil Service Commission. These standards have related to minimum-age limits for employment of youth in Government work, advisory standards for wartime employment in industries in which some of the occupations are relatively hazardous, suggesting the types of jobs most suitable for young workers; farm-labor programs; and combined programs of school and work. In general, these standards call for: Observance of State rnd Federal labor standards; a minimum age of 14 for either full-time or part-time employment, of 16 for manufacturing occupations, and of 18 for hazardous work; a maximum 8-hour day, 48-hour week and 6-day week with certain safeguarded exceptions; special limi-:t,ations on part-time employment of youth between 14 and 18 attending school, -r-Particularly as. tolaours of work; wages the same as those paid adult workers for similar job performance; and safeguards for children in agricultural, employment with special reference to those living away from home. 12- . Advisory standard.s indicating which jobs. are safe for young workers have been_found helpful by employers, counselors, and placement officers, throughout the country. They cover employment in shipbuilding; the air.77, craft industry; lead and lead-using industries; welding occupatdons;, operation of metal-working machines; employment involving exposure to, carbon.disulfidel or to chlorinated solvents; and work in pulp, paper and paper-products industries. 7ork on standards for other occupations is under way or planned. The Children's Bureau and the Office of Education, with the approval of the Tar Manpower Commission and the cooperation of the Ofice of War Information, are carrying on an extensive "Go-to-School Drive" in the late summer of 1944, with the object of getting as many young workers of high-school age as possible back to school on a full-time or part-time basis. A similar campaign was carried on in 1943. Administration of Federal child-l&.or laws Four years after the establishment of the Children's Bureau, the first Federal child-labor law was passed, with the Children's Bureau given responsibility for its administration, Based on the power of Congress to regulate interstate and foreign commerce' the law prohibited shipment of goods-from establishments in which children had been employed within a specifiecq-perod: in violation of standards specified in the act, Nine months after the.law • became effective the Supreme Court, in a five-to-four decision later explicitly reversed, declared it unconstitutional. During the period when the law was in effect the Children's Bureau planned ar put into effect the first attempt at Nation-wide regulation of. child labor. Basic to the procedures which were followed were two principles: First, that the successful enforcement of any child-labor law depends primarily upon. the existence of a well-administered system of certifying the ages of employed children; and second, that the enforcement of a Federal law could not succeed except with the genuine cooperation of State and local officials. The Children's Bureau since 1938 .has had responsibility for administration of the child-labor provisions of the Fair Labor Standards Act. These provisions apply to all establishments producing goods for shipment in interstate or foreign commerce, The basic minimum age for employment in or about such. establishments is 16 years; for employment found and declared ,by the Chief of the Children's Bureau to be particularly hazardous the minimum age is 18 years. In occupations other than manufacturing and mining, children 14 and 15,years may be employed outside school hours and during vacations under conditions defined in regulations issued by the Chief of the Children's Bureau as not. being detrimental to their health, education, or general welfare. Employment certificate systems developed by the States under State child-labor laws have been strengthened and extended to serve Federal as well as State purposes, under agreements between the State agency and the Children's Bureau. In four States, where no State systems were in effect, Federal certificates are issued. Child-labor inspections are carried on under policies adopted by the Wage and Hour and Public Contracts Divisions and the Children's Bureau, which insure that no duplication of effort exists. In general, inspections of establishments for violations of both child-labor and wage -and-hour provisions are made by wage-and-hour inspectors, under authority with respect to child labor delegated by the Chief of the Children's Bureau. Child-labor consultants on the Bureau staff, assigned to wage-and-hour regional offices to assist in developing policies concerning child-labor enforcement, train inspec - 13 tors in this phase of their work, answer inquirie s .concerning the child-labor provisions of the actl.and cooperate in handling especially difficult cases. Six hazardous-occupations orders have been issued under authority of the Fair Labor Standards Act. The orders, developed after investigation, consul tation with industrial experts, physicians, management, and labor,'.and after public hearings, apply ,to employment in the manufacture of explosives, ire. coal mining, as drivers or helpers on motor vehicles, in logging and sawmilling, in the operation of power-driven woodworking machines, and in work involving exposure to radioactive substances. wherever possible, compliance of employers with the child-labor provisions of the Fair Labor Standards Act has been sought through educational measures, but legal action is resorted to whenever deliberate and repeated violations are found. Legal action was taken in 182 cases in the first 5 years of the Act's operation--157 civil, 25 criminal and criminal.contempt cases. In all but two cases the decisions were favorable to the Children's Bureau. Trends in child-labor and youth employment From 1910 to 1940 there was a steady decline in numbers of children employed, brought about in part by industrial trends and technological developments, and in part by higher legislative standards. Fifteen States now have laws setting a minimum age of 16 years for employment in manufacturing establishments and a variety of other occupations. The Supreme Court in the case ofted States v: F. IN. Darby Lumber Company and Fred 7._Darby, February 3, 1941, - reversed the old Hammer v. DEffnhart decision which had made the first Federal child-labor law inoperative, and upheld the child-labor provisions of the Fair Labor Standards Act, establishing a basic minimum age (16) which was 2 years higher than the minimum age incorporated in the first Federal child-labor law in 1916. Improved methods of State and local administration of child-labor and school attendance strengthened greatly the effectiveness of the statutes. Tartime conditions have reversed the trend of two decades toward less employment of children and higher child-labor and school-attendance standards. In April 1940_ the number of young workers 14 through 17 years of age had fallen to less than 900,000. By the summer of 1943 the number of employed youth of these ages rose to a peak of 5,000)000, and remained between 2,750,000 and 3,000,000 during the following winter. The number of students enrolled in public and private high schools dropped from 7,244,312 in 1940-41, to 6,216,119 inn_943-44, a loss of 14 percent. Pressure to relax child-labor laws during the emergency was partly successful in many States, and the amount of illegal child labor, as indicated by inspections under the Fair Labor StandardS. Act increased nearly five times. NorkRelated to Social Problems,andSocinl Services Discovery of the facts In its'early studies of infant mortality, the Children's Bureau found that the babies of unmarried mothers had a mortality rate about three times as high as the rate for babies of legitimate birth. In Baltimore in 1915 almost one-third of the babies of unmarried mothers died before the age of 1 year. The most important single reason was found to be early separa- tion from the mother. Another reason was the high rate of mortality of 14 babies cared for in institutions..-- To the Bureail, it became clear that the baby's first need was for his mother and 'his chance for life depended to a large extent on the meeting of this need. This knowledge led directly to a long series of studies of conditions surrounding children of illegitimate birth, the experience of agencies dealing with this problem in a number of cities, and legal provisions for establishing paternity and obtaining support for the child. As part of its study of the welfare of children in warring countries made before the United States entered the first World Tiar, the Children's Bureau issued a report summarizing information on delinauency in certain countries at war, showing increased delinquency growing out of abnormal family situations and special conditions, and turned to studies of juvenile delinquency in the United States. Through inquiries addressed to courts throughout the country the Bureau tried to measure progress made inestablish-ing juwnile-court principles in the 20 years since the first juvenile court had been established. This study was followed by intensive studies of selected juvenile courts end later by studies of courts with jurisdiction over family cases. Institutions caring for delinquent children were also studied, and information concerning the after-careers of boys who had been cared for at these institutions was obtained, Then the Bureau turned its attention to the ways in which communities could be organized to deal with conditions leading to juvenile delinquency and give understanding treatment to children in the early stages of development of behavior problems. Demonstration projects were set up, first in a district of Chicago and later in a district in St. Paul. Through these studies valuable experience was obtained as to the most effective ways of bringing closer together the schools, the police, the courts, recreational and social agencies so as to afford the best possible means of understanding and dealing with children's problems. Studies of legal and social measures for the protection and care of children without adequate care and protection in their own homes were also made, including adoption, licensing and supervision of child-caring agencies and institutions, and administration of mothers' aid, These measures are closely related to the organization and administration of State and local services for children, and administrative studies were made by the Children's Burau to learn the best methods of organizing social services and making them available to children in rural areas as well as in cities. The interest of the Children's Bureau was not confined to subjects affecting relatively small numbers of children, but was directed toward 'learning the effect of underlying social and economic factors upon a child's chance ih life. Studies were made of the effect of the employment of the mother upon the well-being of her children. During the industrial depression of 1921 and 1922 the Children's Bureau undertook in two cities studies of the effects of unemployment upon children. In 1931 the Bureau turned its attention to the needs for unemployment relief and the damage to children represented by lack of a job for the family breadwinner--this time making studies in coal-mining communities in a number of States, areas which had been suffering from economic depression for several years before 1929. Material gained in these studies was used to encourage private child-feeding activities, carried on by the American Friends Service Committee, and as evidence for the entrance of the Federal government into the administration of relief. 15 - Li the' '4:013r'y#ars of the depression the Childrenfs Bureau made studies of the plight of boys and girls riding the freights and hitchhiking across the ,country in search of work. It was the :only Federal agency, in this period, collecting statistics of public and private relief, a project made possible:,bythe Bureau' s pioneer activities in collection of statistics of health and pocjAl..services through the cooperationof a number of communities. The. Childien's Bureau also pioneered in the collection of statistics of employ-mOrtit certificats.is6ued permitting children to leavr school for gainful employment, and ,statistics of juvenile court cases. A study, made in 1933, in cooperation with the 71omen's Bureail and the Bureau of Labor Statistics of the Department of Labor, was concerned with the effect of the depression on the standard of living of railroad employees and their families. Diets had been reduced to a level at.which nutritional' needs were not being met. Medical needs were not being met. Many children left high school because thete was not money for books and clothes.- Warning that "neglect of the health, education, and general welfare of children will be permanently costly to the children and to the future of the country," Miss Abbott in the Twentieth Annual Report of the Children's Bureau, issued in 1932, summarized some of the results of the depression on children, and asserted that these conditions carried "serious implications" which could be combated "only by increased vigilance on the part of health and social agencies and the determination of the public that permanent losses to children must be prevented." During the present\war periodEstudiesjuveniledelangeency,special•pralemr of Negro children in families migrating to war areas, and community programs for the care of children of working mothers have been made. Information has been ob.tained concerning recreation programs for 'teen-age' youth. Dfaluw_q_afaIED(.12112 Early studies of the Children's Bureau of illegitimacy and. juvenile. delinquency led to conferences on legal standards for the protection of children born out of wedlock and the adoption of a "Uniform Illegitimacy _Act," by the Natinal Conference of Commissioners on Uniform State Laws; and conferences 'on, juvenile court procedures and the adoption of standards which formed, in large part the •IDIsis for a uniform juvenile-court act. ,Standerds of care for institutions for dependent children were published. in • the form 'of a handbook. .Extensive advisory service in regard to State child-welfare laws has given opportunity to help to translate into legislation standards and. recommendations growing out of Children's Bureau studies and the crystallization of experience in various fields of social service. During the war period standards for day care programs for children of working mothers and suggestions for community programs for controlling juvenile delinquency were developed and published. -16 Administration of grants-in-aid to the States fo child w lfa e s vices. Grants to State public welfare agencies are provided for in title V, part 3 of the Social Security Act, with the purpose of enabling the States .to establish, extend, and strengthen child welfare services, especially in rural areas and in areas of special need. The services are directed toward the needs of homeless, dependent, and neglected children and children in danger of becoming delinquent. The Federal funds, supplemented by State and local funds, are used to provide the services of child-welfar67orkers as special cohsultantsrn the staffs of State public welfare agencies and for assignment to local communities, to develop local child-welfare programs and give case-work service to children, of whom about 70 percent are in their own homes, the remainder being in foster homes or institutions. The annual appropriation for this program is $1,510,000. On December 31, 1943, 243 workers were employed under this program on the staffs of State welfare departments, 325 workers were in rural areas, and 101 were in areas of special need, chiefly centers of war activity. The regional child-welfare consultants of the Bureau's Social Service Division work with the State welfare agencies in the development of joint plans for child-welfare services, as required by title V, part 3 of the Social Security Act, obtain information and give consultant service concerning all aspects of social service for children, including day-care services for children of working mothers, licensing and supervision of child-caring agencies, and community programs for the prevention and treatment of juvenile delinquency. Prowess in_providlm220121_services for children. When the Children's Bureau was established only two States (one limited to one county) had laws providing public aid for needy children in their own homes. Mothers' aid laws spread over nearly the entire country, and standards of administration were improved. In 1935 Federal funds were made available _ under the Social Security Act administered by the Social Security Board, for an expanded program of aid to dependent children living in their own homes or with relatives. Great progress has been made in the understanding of juvenile delinquency and in methods of dealing with it. Child-guidance services have been developed. Foster-home care of children who cannot be provided for in their own homes has been greatly extended and improved. More adequate provisions are made for children born out of wedlock. Nearly every State public welfare department now has a child-welfare division or bureau. The most significant developments in social services for children have been the acceptance of the principle that they must be directed primarily to work with children in their own homes whose problems require special attention; acceptance of the principle of public responsibility, to be expressed through State leadership and assistance and the development of local services; recognition of the importance of the school in the planning and development of community programs and provision of educational and vocational guidance, visiting-teacher service, extended school programs for children of working mothers, and other means of adapting school programs to individual needs; development of group-work programs for children; and emphasis upon utilization and coordination of all child-welfare resources of the community, both public and private. Underlying these developments have been the extension and improvement of professional training for social work, to which - 17 the grants in-aid programs for *child-welfare and public-assistance services have contributed through stimulation. and provision of educational leave for workers on the staffs of State and local, welfare agencies. The work of the Children's Bureau has been an important factor in these changes. Utilization of Advisoll Services From the beginning the Children's Bureau has had the benefit of advice from professional workers, public officials, private agencies, and citizens' organizations, and has carried on cooperative activities with other agencies and organizations, both public and private. Advisory committees review the bulletins for mothers prepared by the Children's Bureau before they are published, and assist in their preparation. Policies governing administration of grants-in-aid under title V of the Social Security Act are developed after consultation with advisory committees and State administrators. Advisory committees help to work out policies regarding child labor and youth employment, and give assistance in special fields of study and advisory service. Among the national organizations with which the Children's Bureau maintains close working relationships are the National Congress of Parents and Teachers, the General Federation of Women's Clubs, the National Child Welfare Division of the American Legion, the Child Welfare League of America, the National Child Labor Committee, national youth-serving agencies, and farm and labor organizations. SptELI_Conference.s Conferenceson special subjects of Nation-wide interest are called from time to time. Among such conferences are the Child Health Recovery Conference, held October 6, 1933; the Conference on Present Emergencies in the Care of Depen- dent and Neglected Children, held December 16, 1933; and the Conference on Better Care for Mothers and Babies, held January 17-18, 1938. The Conference on Better Care for Mothers and Babies was attended by 481 persons, and 46 organizations were represented on the Planning Committee. The Children's Bureau through various members of the staff took an active part in the National Health Conference, July 18-20, 1938, and the National Nutrition Conference for Defence, May 26-28, 1941. White House Conferences The Children's Bureau has taken an active part in the White House Conferences held in 1919, 1930, and 1940, to consider the needs of children and how they may be met. The 1919 conference was held under the auspices of the Children's Bureau as the concluding activity of Children's Year, and adopted minimum standards for the public protection of the health of mothers and children, education, and for children entering employment, and for protection of children in need of special care. The Chief of the Bureau served as secretary of the executive committee of the 1930 White House Conference on Child Health and Protection, and members of the staff served on committees in all four major divisions. The 1940 Thite House Conference on Children in a Democracy was organized under the leadership of the Children's Bureau. The Secretary of Labor was Chairmanand the (Shier of the ChildieWs Bore Executive Sepretary of the Conference. The recommendations of the Conference constitute a statement of goals for children and youth in all aspects of life. -18 Commission on Children in Wartime Soon after the United States entered the present war, a Commission on Children in Tartime was appointed by the Chief of the Children's Bureau, to review all aspects of the needs of children and young people under the impact of war. The chairman of all the Bureau's standing advisory committees, and men and women associated with a wide range of national organizations and professional fields constitute the membership of the Commission. It adopted in 1942 a Charter for Children in Vartime, in 1944 a statement of Goals for Children and Youth in the Transition From War to Peace. It adopted a Program of State Action for Our Children in Wartime, and outlined other steps which were taken by the Bureau in developing a program of community action, a letter to parents designed to help them deal with the psychological effects of war on children, and a community program for controlling juvenile delinquency. It has urged the development of State and local committees on children in wartime, associated preferably with State and local defense counos: cils, and the Children's Bureau, in cooperation with the Office of Civilian Defense, has encouraged the development of such committees. Through a special committee of the executive committee the Commission is now engaged in postwar planning. Cooaration in International Activities The Children's Bureau has taken an active part in the social-welfare and child-welfare work of the League of Nations, and in the work of the International Labor Organization. It assisted in preparations for the United Nations Conference on Food and Agriculture, and cooperates actively with the Interim Commission set up following that Conference. It has been closely associated with the development of the 'United WaticiiiRelier and Rehabilitation Administration. with appropriations made available through the State Department under the program of the Interdepartmental Committee on Cooperation with the American Republics the Children's Bureau assigns specialists in child health and social services on the request of Governments to assist official agencies in developing children's services, and cooperates in programs of study and observation in the United States for those engaged in services for Children of the other Americas. The Children's Bureau has participated actively in the work of the Pan American Child CongressPs,and was responsible for the organization and direction of the Eighth Congress, held in Washington in 1942. It cooperates actively with the American International Institutefor the Protection of Childhood, which has its headquarters in Montevideo. The Chief of the Children's Bureau is responsible for the work of the Institute in the zone which includes the United States, Mexico, Central America, and the Caribbean Republics. How_the Children's Bureau is Orp.anizedijotaomiations The activities of the Children's Bureau fall in three main fields, though much of its work cuts across all of these. They are maternal and child. health, social service, and youth employment. General direction of all activities is provided through the Office of the Chief. The Associate Chief, who is a physician, carries special responsibilitiy for all health activities, which are carried on through the Division of Health Services, responsible for administration of grants to States and providing medical, -•19 public-health nursing, medical-social-work, and nutrition consultant services; and the Division of Research and Child Development, responsible for research and advisory service in maternal and child health and for the preparation and revision of bulletins for parents. The Assistant to the Chief, who is also Director of the Social Service Division, is responsible for research and advisotr service in the field of social services for children and for the administration of grants-in-aid for child-welfare services. Responsibility for iiesearehl advisory' 'service, and administration in all matters per-.aining to thechild labor and youth employment is vested in the Industrial Division, including the administration of child-labor provisions of the Fair Labor Standards Act. Mental health and child-guidance service is of concern to all of these divisions, which also share responsibilities with reference to such fields as care of children of employed mothers, health and safety aspPcts youth employment, maternity policies for women employed in industry. The Division of Statistical Research is responsible for statistics required in the programs for which the Children's Bureau has administrative responsibility, for developmeht'ahilmaintenance of current statistical series (employment certificates; juvenile-courts; social-statistics; for analysis of infant and maternal mortality statistics, and for special studies and coordination of research activities for the entire Bureau. Responsibility for publications and publicinformation is placed inthe Editorial Division, and forgeneral administration in the Administrative Office. An, Inter-American Unit is attached to the Office of the Chief which also carries responsibility for the work of the Commission on Children in Wartime and for general cooperation with State and local committees on children end national organizations concerned with children, both Governmental and private. ' Childrenrs-Etteau apptottiatibns*for'the'fiscal' year ending June 30, 19h5 are showing in the following table: 20 Children's Bureau Appropriations ..• Fiscal Year 1945 - Appropriations for Salaries and Expenses: Salaries and Expenses, Children's • • • • • • • • • 0 Salaries and. Expenses, Maternal and Child Welfare, Social Security Act, Children's Bureau.......... • • • • 6 • • • • • Salaries and Expenses, Child Labor Provisions, Fair Labor Standards At, Children's Bureau..... • • * • • • • • • • Salaries and Expenses, Emergency Maternity and „Infant Care, Children's Bureau (National Defense)......... Appropriations for Grants to States: $ j76,600 420,800 255,000 43,000 •• • Grants to States for Maternal and Child Health Services, Social Security Act, Children's Bureau... Grants to States for Emergency Maternity and Infant Care, Children's Bureau (National-Defense).. Grants to States for Services far Crippled Children, Social Security Act, Children's Grants to States for Child welfare Services, Social Security Act, Children's Bureau.................... Allotments from other Appropriations: 00 ..... 5820,000 000 .... . 42,800,000 ... .... 3,870,000 11510v000 • • • • • • • From Department of State for Cooperation with the American Republics.. ••••••• ••••••••••••••••••••• •••••••••• From Department of Labor: Travel.• • • • • • • • • • • • • • • . . . • • • • • • . • •;*,4• • • •• 04.* • • • • • • • •• • •• Printing.* • • • • • • • • • • • • • • • • • • • • • • • • • • • • • 41 • • • • • • • • • • • • • 001 Contingent.••••••••••••••••••••••••••••••••••••••••••••••• •:78,647.Y • 141,000 98,000 20,000 I/ Estimated-allotment pending 21 - Interrelated Activities of the Divisions of the Children's Bureau So closely related are the activities of the' dhildren's Bureau that most of its studies and administrative activities involve consultation and cooperation among its specialized divisions. Eximilols of recent studies conducted by two or more divisions of the Bureali iie the study of child labor and the welfare of children in the families of 'agricultural workers in -Hidalgo County, Tex.; a study of maternity riolicies and standards of care for women in war industries,'studies of day-cere services foi. children of employed mothers and development of standards Of care for such children; and mental-health and child-guidance activities. Compilation and analysis of statistics in the social and health fields are carried on by the Division of Statistical Research in cooperation with the health .and social service divisions. In its administratiye activities joint undertakings • and close cooperation on the part of the div.isibns of the Children's Bureau are essential. For example, the needs ot crippled children fbr foster-home convalescent care, and the best methods of providing such care, must be explored by the Division of Health Services in cooperation with the Social Service Division. The social and economic needs of many mothers receiving care under the emergency maternity and infant-care program, especially young mothers away from home and expecting their first babies, are acute, and suggestions of ways as to which these needs may be met are worked out by the Division of Health Services in cooperation with the Social Service Division. Determination of hazardous occupations under the child-labor provisions of the Fair Labor Standards Act and development of advisory standards as to safe jobs for young workers frequently require the cooperation of the Division of Research in Child Development and the Social Service Division. Suggestions for community programs for safeguarding employed youth require consultation and assistance to the Industrial Division from the Social Service Division and the Division of Research in Child Development. , All divisions of the Children's Bureau are working together to stimulate overall State and local review of the needs of children, especially as they ate affected by war conditions, and action to meet these needs. They are working with advisory committees and other groups in developing plans for more adequate health,educational, and social services for children in the post-w3r years. Dealing as it does with State health, welfare, and labor departnents the Childrenlpi Bureau is in a poiition to draw together the # country, e eriz.rce of the countrproviding services for children in these three fields. Siailiarly, to private agencies and to parents the Children's Bureau brings a corAbination of experience and knowledge of many types of professional workers that are of great value in dealing with the many aspects of child life. Coo • eration of the Children's Bureau with Other Federal Agencies The Children's Bureau cooperates with many agencies of the Federal Government. Its direct official relationships are chiefly within the Department of Labor. Its other relationships include close cooperation with Federal research agencies, such as the Bureau of the Census of the Department of Commerce and bureaus of the Deparment of Agriculture and the Federal Security Agency; and with agencies having administrative functions, for example, the Social Security Board, the Public Health Service, - 22 the Office of Vocational Rehabilitation, the Office of Education, agencies of the Department of Agriculture, and the National Research Couneil. During the war the Childrenls Bureau has developed working relationships with respect to children's needs and children's services, and policies with reference to youth employment and employment of mothers, with the following agencies, in addition to those mentioned above: Office of Community War Services, Office of Civilian Defense, War Manpower Commission, Federal Works Agency, War Food Administration, National Housing Agency, War Department, Department of the Navy, War Production Board. The Children's Bureau and the Office of Education of the Federal Security Agency are frequently associated. The Children's Bureau promotes recognition of education as an essential factor of child life, and emphasizes the respon-aibility of the public to provide educational opportunity for children and youth and to safeguard them against too early employment that interferes with their education„' The Office of Education and the Children's Bureau collaborate in reviewing conditions and developing recommended policies and standards on subjects which involve the health, employment, and social-service aspects of school programs and the relation of the/schools to other community agencies. Among the programs in which the two agencies have recently collaborated are the development of policies and standards for the wartime employment of youth, part-time school and work programs, employment of nonfarm youth in wartime agriculture, and day care and extended school services for children of working mothers. In the past 10 years the programs of the Public Health Service and the Children's Bureau have been developed as cooperating, and not competing or duplicating activities. Working relationships between the two agencies have been greatly strengthened since the enactment of the Social Security Act, which authorizes grants-in-aid for public health work, administered by the Public Health Service, and for maternal and child health services and services for crippled children, administered through the Children's Bureau. There has been close cooperation in joint planning between the two Federal agencies with respect to reports and materials requested of State agencies, such as the adoption of budget forms which can be used by both. Likewise, in the development of basic policies dealing with merit systems and with the training of professional personnel, the Public Health Service and the Children's Bureau have worked closely together in the interest of uniformity and simplification. Other activities which have offered opportunities for joint planning and close cooperation have been in fields such as studies on the construction of nursery and pediatric units of general hospitals; standards for child-health centers in housing projects which are reviewed by the United States Public Health Service; assignment of lend-lease personnel employed by the United States Public Health Service who have special training in obstetrics or pediatrics and can be located in communities where needs are known to exist for such services; provisions for joint conferences with the Association. of State and Territorial Health Officers at annual meetings and special meetings held in Washington; participation in orientation courses for personnel t.o 23 be assigned to field work. There has been also joint planning between field representatives of the Public Health Service and the Children's Bureau in delaing with problems related to the development and improvement of ternal and child-health services and other public-health services in the States. At the time of the National Health Conference the Children's Bureau, the United States Public Health Service, and the Social Security Board cooperated closely in the development of basic information and in developing proposals which were made at the conference for extending health and medical services.