ons and is to be distinguished from the dynamic
maladjustments next to be considered.

Sec. 16. #Individual maladjustment in finding jobs.# Another kind of
individual maladjustment is the failure of the jobless man to connect
with the manless job. A certain amount of this maladjustment must
exist in the most stable industries and in the most settled industrial
conditions. Fluctuations occur in the market demand for the products
of various establishments, requiring the taking on or laying off of
some men. Fluctuations occur in the plans both of employers and of
wage-workers as a result of age, of removal, for reasons more or
less non-economic, of desire to change occupations, of variations in
health, and of countless other causes. The needs of the employer for
a worker, and of the worker for a job, are mutual. To a large degree
these various fluctuations are mutually compensatory, workers going
and coming, orders increasing here and decreasing there. Total jobs
and total workers capable of filling the jobs, are at any moment in
normal times equal quantities, if they can be brought together. But
almost everywhere is lacking a real labor-market. The substitutes
for it are largely ineffective: trade-union action, employers'
associations, "want ads," cards in shop windows, weary walks from door
to door, lines of waiting men outside of factories, private employment
agencies. At their best the private employment agencies perform
valuable services within limited fields, but they are uncoordinated,
and utterly inadequate to meet the chief need, and at their worst they
are the instruments of great abuses against the unemployed.

Sec. 17. #Public employment offices.# Vigorous efforts to create local
"free employment offices," or "labor exchanges," began in a number
of countries about 1895. The movement gained headway in the next ten
years and has since steadily grown. In Germany the chief exchanges
have been founded and conducted by the municipalities (while others
are controlled by the unions and by groups of employers) and have
remained largely decentralized, tho cooeperating to some extent through
voluntary state conferences of officials of the exchanges, and since
1915 required to report to the imperial statistical office. The total
number of exchanges in Germany (in 1915) was nearly 3000. The general
results have been remarkably good, altho not completely satisfactory.

Every industrial country of Europe has done something