Outside the field of legal control, individual action is controlled primarily by public opinion. There are many practices, strictly speaking "within the law," that an increasingly enlightened public opinion will not sanction; there are many practices encouraged by an enlightened public which no law compels. There is no law forcing business establishments to close every Saturday during the summer, yet many now do. There are many courtesies practiced by them which are not ordained by law. That adverse public opinion may have economic consequences if disregarded is evidenced by the powerful instrument the Consumers' League found in advertising against firms that maintained particularly unsanitary and morally degrading working conditions for their employees, or the dread that hotels and department stores have for adverse publicity. The phenomenal development of modern advertising is an instance of the direct economic values that have been found in winning public approval. There is more than metaphor in the statement made during the war that Lord Northcliffe, as owner of a chain of English newspapers with an immense circulation, was a "cabinet minister without portfolio." The growth of humanitarian sentiment has frequently enforced the improvement of labor and social conditions before improvements were made compulsory by law. And in that field of personal relations, which constitute so large a part of our daily life, our conduct is controlled almost entirely by the force of the public opinion with which we come in contact. There is much more courtesy and kindliness and cooeperation manifested in the ordinary contacts of life of a modern city than is required, or ever could be secured by statute. EDUCATION AS THE AGENCY OF SOCIAL CONTROL. There is enormous power in the habits of approval or disapproval to which we have, in our early days, been subjected by our parents, teachers, and companions. It is through education, in the broadest sense, that the young come to learn, and hence to practice, those actions which are socially approved, and by the same token to avoid those acts which are socially condemned. Through formal education the adult members of a society impress upon the plastic minds of the immature those habits of thought and action which are currently recognized as desirable. Education thus becomes the crucial instrument by which social standards are established and transmitted. Society exists through a process of transmission quite as much as biological life. The transmission occurs by means of communication of habits of doing, thinking, and feeling, from the older to the younger. Without this communication of ideals, hopes, expectations, standards, opinions, from those members of society who are passing out of the group life to those who are coming into it, society could not survive.[1] [Footnote 1: Dewey; _Democracy and Education_, pp. 3-4.]