problems to get a start by temporarily ignoring the school and thinking of other human situations. I take it that no one would deny that the ordinary good citizen is as a matter of fact subject to a great deal of social control and that a considerable part of this control is not felt to involve restriction of personal freedom. Even the theoretical anarchist, whose philosophy commits him to the idea that state or government control is an unmitigated evil, believes that with abolition of the political state other forms of social control would operate: indeed, his opposition to govern- mental regulation springs from his belief that other and to him more normal modes of control would operate with abolition of the state.
Without taking up this extreme position, let us note some examples of social control that operate in everyday life, and then look for the principle underlying them. Let us begin with the young people themselves. Children at recess or after school play games, from tag and one-old- cat to baseball and football. The games involve rules, and these rules order their conduct. The games do not go on haphazardly or by a succession of improvisations. Without rules there is no game. If disputes arise there is an umpire to appeal to, or discussion and a kind of arbitration are means to a decision; otherwise the game is broken up and comes to an end.
There are certain fairly obvious controlling features of such situations to which I want to call attention. The first is that the rules are a part of the game. They ate not outside of it. No rules, then no game; different rules, then a different game. As long as the game goes on with a reasonable smoothness, the players do not feel that they are submitting to external imposition but that they are playing the game. In the second place at times feel that a decision isn't fair and be may even get angry. But he is not objecting to a rule but to what he claims is a violation of it, to some one-sided and unfair action. In the third place, the rules, and hence the conduct of the game, are fairly standardized. There are recognized ways of counting out, of selection of sides, as well as for positions to be taken, movements to be made, etc. These rules have the sanction of tradition and precedent. Those playing the game have seen, perhaps, professional matches and they want to emulate their elders. An element that is conventional is pretty strong. Usually, a group of youngsters change the rules by which they play only when the adult group to which they look for models have themselves made a change in the rules, while the change made by the elders is at least supposed to conduce to making the game more skillful or more interesting to spectators.
Now, the general conclusion I would draw is that control of individual actions is effected by the whole situation in which individuals are involved, in which they share and of which they are co-operative or interacting parts. For even in a competitive game there is a certain kind of participation, of sharing in a common experience. Stated the other way mound, those who take part do not feel that they are bossed by an individual person or are being subjected to the will of some outside superior person. When violent disputes do arise, it is usually on the alleged ground that the umpire or a person on the other side is being unfair; in other words, that in such cases some individual is trying to impose his individual will on someone else.
It may seem to be putting too heavy a load upon a single case to argue that this instance illustrates the general principle of social control of individuals without the violation of freedom. But if the matter were followed out through a number of cases, I think the conclusion that this particular instance does illustrate a general principle would be justified. Games are generally competitive. If we took instances of co-operative activities in which all members of a group take part, as for example in well-ordered family life in which there is mutual confidence, the point would be even clearer. In all such cases it is not the will or desire of any one person which establishes order but the moving spirit of the whole group. The control is social, but individuals are parts of a community, not outside of it.
I do not mean by this that there are no occasions upon which the authority of, say, the parent does not have to intervene and exercise fairly direct control. But I do say that, in the first place, the number of these occasions is slight in comparison with the number of those in which the control is exercised by situations in which all take part. And what is even more important, the authority in question when exercised in a well-regulated household or other community group is not a manifestation of merely personal will; the parent or teacher exercises it as the representative and agent of the interests of the group as a whole. With respect to the first point, in a well ordered school the main reliance for control of this and that individual is upon the activities carried on and upon the situations in which these activities are maintained. The teacher reduces to a minimum the occasions in which he or she has to exercise authority in a personal way. When it is necessary, in the second place, to speak and act firmly, it is done in behalf of the interest of the group, not as an exhibition of personal power. This makes the difference between action, which is arbitrary, and that which is just and fair.
Moreover, it is not necessary that the difference should be formulated in words, by either teacher or the young, in order to be felt in experience. The number of children who do not feel the difference (even if they cannot articulate it and reduce it to an intellectual principle) between action that is motivated by personal power and desire to dictate and action that is fair, because in the interest of all, is small. I should even be willing to say that upon the whole children are more sensitive to the signs and symptoms of this difference than are adults. Children learn the difference when playing with one another. They are willing, often too willing if anything, to take suggestions from one child and let him be a leader if his conduct adds to the experienced value of what they are doing, while they resent the attempt at dictation. Then they often withdraw and when asked why, say that it is because so-and-so "is too bossy."
I do not wish to refer to the traditional school in ways which set up a caricature in lieu of a picture. But I think it is fair to say that one reason the personal commands of the teacher so often played an undue role and a season why the order which existed was so much a matter of sheer obedience to the will of an adult was because the situation almost forced it upon the teacher. The school was not a group or community held together by participation in common activities. Consequently, the normal, proper conditions of control were lacking. Their absence was made up for, and to a considerable extent had to be made up for, by the direct intervention of the teacher, who, as the saying went, "kept order." He kept it because order was in the teacher's keeping, instead of residing in the shared work being done.
The conclusion is that in what are called the new schools, the primary source of social control resides in the very nature of the work done as a social enterprise in which all individuals have an opportunity to contribute and to which all feel a responsibility. Most children are naturally "sociable." Isolation is even more irksome to them than to adults. A genuine community life has its ground in this natural sociability. But community life does not organize itself in an enduring way purely spontaneously. It requires thought and planning ahead. The educator is responsible for a knowledge of individuals and for a knowledge of subject-matter that will enable activity ties to be selected which lend themselves to social organization, an organization in which all individuals have an opportunity to contribute something, and in which the activities in which all participate are the chief carrier of control.
I am not romantic enough about the young to suppose that every pupil will respond or that any child of normally strong impulses will respond on every occasion. There are likely to be some who, when they come to school, are already victims of injurious conditions outside of the school and who have become so passive and unduly docile that they fail to contribute. There will be others who, because of previous experience, are bumptious and unruly and perhaps downright rebellious. But it is certain that the general principle of social control cannot be predicated upon such cases. It is also true that no general rule can be laid down for dealing with such cases. The teacher has to deal with them individually. They fall into general classes, but no two are exactly alike. The educator has to discover as best he or she can the causes for the recalcitrant attitudes. He or she cannot, if the educational process is to go on, make it a question of pitting one will against another in order to see which is strongest, nor yet allow the unruly and nonparticipating pupils to stand permanently in the way of the educative activities of others. Exclusion perhaps is the only available measure at a given juncture, but it is no solution. For it may strengthen the very causes which have brought about the undesirable antisocial attitude, such as desire for attention or to show off.
Exceptions