L3 280b U58 ALBERT R. MANN LIBRARY AT CORNELL UNIVERSITY TWO PRIZE ESSAYS ON EDOCiTlOlL DWIPICIITIOII IN THE STATE OF NEW YORK PUBLISHED FOE THE UNIFICATION PRIZE COMMITTEE Palmyra, N. Y. 1890 To the authors of these. two papers were awarded the prizes of $100.00 each, offered in June, 1899, by unnanied persons, for the best essays by a woman and a man respectively upon the subject of unification, of the educational system of the State of New. York. Copies may be obtained upon request frona the Unification Prize Committee, Palmyra, N. Y. FOR I TAm J. niOML DMIHCHION THE NEW YORK STATE EDUCATIONAL SYSTEM ITS HISTORY, ITS DEFECTS, AND THE REMEDY A PRIZE PAPER SARA ELIZABETH STEWART Analysis Page Introduction 3 History 3 Founding of University of the State of Xew York 3 Establishment of department of public instruction 3 Functions of each "4 Defects 4 Lack of economy 4 Lack of harmony 6 Political influence 8 Eemedy 9 Unification 9 Under superintendent 10 Under elective board of regents 10 Under present board of regents 11 Conclusion 12 (2) The New York State Educational System: its History, its Defects, and the Remedy The changes in the New York educational system proposed last winter in the " White educational bill " have aroused not only strong feeling among those directly affected, but also a general and widespread public interest. As reconstructive educational legislation in some form will probably be an important feature of the work of the next legislature, a study of present conditions is not ill-timed. ANOMALY OF A DUAL SYSTEM There are now in New York State two distinct and independ- ent systems of public education, of radically different organiza- tion, occupying different fields, working in great part without reference to each other, and yet vitally connected — the University of the State of New York and the department of public instruc- tion. ' ' Taken together they form a system without theoretic unity and with great and for the most part unnecessary complexity. " New York alone of the 45 United States presents this anomaly of dual control for a single purpose, and its unique position seems to result from gradual growth rather than from premeditation. In 1784, within a year of the evacuation of New York by the British, the University of the State of New York was established by law and its regents empowered to hold estates to use for " the further promotion of learning and the extension of literature." In 1787 a committee of the regents recommended " permanent superintendence and public elementary schools through the State." In 1813 State supervision of the schools began when the office of State superintendent of common schools was created. The secretary of state performed the duties of this office from 1831 to 1854, when a separate department was created by the leg- (3) 4 THE NEW YORK STATE EDUCATIONAL SYSTEM islature. Since then the department of public instruction has been independent of the board of regents, though the State super- intendent is ex officio a regent. The constitutional convention of 1894 discussed at length the duality of our educational system, but the committee on educa- tion announced itself unable to agree on any plan of unification, though it plainly recognized its desirability. The University of the State of New York, already the oldest institution of the State and the recipient of the Grand prix at the French exposition of 1889 as well as of a special award at the World's Fair in 1893, was, as a result of the 1894 convention, introduced into the con- stitution, and must therefore endure while our constitution remains unchanged. As our educational system is now administered the department of public instruction has supervision over all agencies for the training of public school teachers and the distribution of most of the common school fund, while the State superintendent himself exercises almost despotic judicial powers and acts as final arbiter in all disputes concerning school matters. The University of the State of New York, in addition to its organized supervision of public libraries, museums, and home education in the State, has powers of inspection and examination in high schools and acade- mies and has at its disposition moneys derived from the United States deposit fund and the literature fund, supplemented by $60,000 from the general fund, to be distributed among its acade- mies and high schools. DUPLICATION OF LABOR AND EXPENSE The Empire State, spending on education almost $6,000,000 more than any other State, with its great universities at Ithaca and New York, its famous colleges whose alumni rolls shine with illustrious names, its 541 high schools generally admitted to show better average scholarship than those of any other State, has no reason to be ashamed of its educational advantages; yet its citi- zens may do well to ask if there is no room for improvement. And first the careful tax-payer, burdened by municipal or town taxation, by general State and by school taxes, seeing on every hand lavish expenditure of public funds, the army of office- holders, the extravagant management of public affairs, this same ITS HISTOEY, ITS DEFECTS, AND THE REMEDY tax-payer who has demanded and brought about |unity in man- agement of public charities, of asylums, of prisons, may object to our present dual educational system on the ground of lack of economy. Undoubtedly there is duplication of labor aad con- sequent expense. The superintendent of public instruction for executive control of our public schools receives a salary from the State of $5,000. Meanwhile the board of regents (serving as is well known without salary themselves) pay their secretary for executive duties connected with public libraries and schools $7,- 000. Each organization has its separate staff of inspectors, ex- aminers, assistants, deputies, clerks, and office boys. Each has its separate list of inspectors' traveling expenses, separate lists of expenses for preparing, printing, transmitting, conducting, and correcting examinations. Each must prepare and submit to the legislature an annual report, compiling therefor independent lists of statistics, demanding separate reports from each school in the State and requiring to be printed, each a large volume in itself, at State expense. Two independent offices are also supported, each having its full complement of clerks, stenographers, and typewriters, one on the first floor, the other on the fourth floor of our State capitol, but both devoted to superintending and con- trolling our State educational system. Eor the use of the department of public instruction 133,000 is appropriated annually " for instruction — by means of pictorial representation. ' ' The lantern slides used for this purpose are pre- pared with the greatest care, special agents even being sent abroad to secure original and accurate pictures. As the result these slides are pronounced by experts 'to be the best made. Yet not one of them is available to the University even by purchase! The regents accordingly buy others from their appropriation, and thus the State finds itself possessed of two separate collections of lantern slides, the one controlled by the department and una- vailable to the regents, the other controlled by the regents and unavailable to the department, both collections being originally intended to serve the same end. DUPLICATION OF INSPEOTIOST AND KEPOETS Nor is this duplication of labor and expense in administration, with its consequent drain on the taxpayer's pocket, the only waste 6 THE NEW YORK STATE EDUCATIONAL SYSTEM resulting from the dual system of control. Every public school in the State in which instruction above elementary branches is given suffers from duplication of labor. One day a regents inspector visits the school and investigates the building, the laboratory supplies, the teaching equipment and force. Within a week, perhaps, the inspector from the department of public instruction appears, requiring the same information and demand- ing the same amount of time and attention from the school officers. Inspection is without doubt beneficial, but let there be moder- ation even in inspection. At the close of the school year, detailed reports must be sub- mitted by each school, one to the University of the State of New York ; the other, quite different, to the department of public in- struction. No one who knows the time and labor involved in preparing with anything approaching accuracy even the simplest of these school reports, who has seen the school officer over- whelmed with the rush of necessary work at the close of the year, struggling to secure the data demanded by one department, and, that accomplished, to present the same facts under different heads to suit the demands of the other department, no one who appreciates the importance of economy in expense, in time, in energy, can fail to regret the necessity for such duplication. It may be urged, however, that much of this and similar wastes, as seen in our schools, could be avoided by harmony in State con- trol. But such harmony is singularly and of necessity lacking in our system of dual supervision. A perfect educational system de- mands organic unity. This we lack. Every high school teacher in the State will testify to the virtual impossibility of arranging the curriculum to satisfy the require- ments of the department of public instruction and also offer the combination of studies required for the various regents certifi.- cates. The high school faculty, striving to plan its course to meet college requirements, local tastes, and also the clashing demands of a double-headed State management, comes to deplore bitterly this lack of unity. DUPLICATION' OF EXAMINATIONS But perhaps the greatest evil resulting from lack of co-opera- tion is found in the multiplication of examinations, in no case an ITS HISTORY, ITS DEFECTS, AND THE REMEDY 7 unmixed blessing. A boy enters the high school passing pre- liminary examinations in all the elementary branches. For each subject he receives his regents passcard. After a year or two he finds its necessary to add to his funds before going on with his studies. He applies for a position in a district school, but can not be employed as a public school teacher till he has passed " the uniform examinations " in exactly the same elementary branches as those covered by the regents passcards he has already earned, requiring no more extended or varied knowledge, but conducted by a different department. Or the not uncommon instance presents itself of an ambitious lad, now a country school teacher, but with aspirations toward a profession, perhaps law or medicine or dentistry. He has already passed examinations in arithmetic, geography, English, and the other branches required for a State teachers certificate. Every spare moment is now almost inexpressibly precious to him, but in addition to imparting instruction in all the branches demanded — and in these ungraded country schools 30 different classes a day are no rare thing — to helping on the farm, doing errands, picking up odd jobs wherever he can, and studying for his selected pro- fession, he must find time to " brush up " and again take exam- inations in each preliminary subject, this time conducted by the regents. For, the two departments being mutually exclusive, none of the credentials obtained from the department of public instruction for purposes of teaching are accepted by the Univer- sity of the State of New York, which has entire control of pro- fessional requirements. In whatever direction our students turn, whatever field of employment or advanced instruction they seek, examinations seem to multiply, and instead of disposing of any one subject once for all, the tendency is to examine and re-exam- ine, each State department calmly ignoring all credentials issued by the other, while the student, his teachers, his friends, and his family suffer from the results. DUPLICATION OF DBGKEES The degree B.A., which may not be granted by any institution under University supervision that fails to reach the required stand- ard, can be secured in the New York city normal college, which is controlled by the department of public instruction, though the 8 THE NEW YORK STATE EDUCATIONAL SYSTEM entrance requirements are there distinctly lower than those of other colleges of the State. This college, on the other hand, refuses to accept regents credentials for entrance requirements, though they are recognized by leading colleges in this State and elsewhere. Here, then, we have the edifying spectacle of an institution under one of the State educational departments ignor- ing the credentials issued by the other, and that in turn despising this institution's degree. DUPLICATION OF MATERIAL Still another example of the lack of co-operative effort is found in connection with the regents system of travelling libraries, by which books, pictures and lantern slides are lent to schools in the University. As the common schools are not legally entitled to these loans, the important work of guiding the reading and de- veloping the artistic tastes of the pupils must be postponed till they enter the high school, though to obtain the best results it is generally recognized that the training should begin in the lowest grades. Important, therefore as are these efforts on the part of the regents to cultivate an abiding taste for good reading and for true art, they are seriously handicapped by the lack of harmony in general administration that brings the pupils to the high school unprepared for some of the instruction that will be most far- reaching in its effects. There is scarcely a teacher of the State who cannot produce definite illustrations of the disadvantage to teachers and pupils of this lack of harmony in educational control, and that its evil effects are no more in evidence is due to the practical common sense of those who work under the system rather than to the sys- tem itself. POLITICAL CONTROL OF THE DEPARTMENT OF PUBLIC INSTRUCTION But even if the present dual system were so administered, with perfect sympathy and intelligent co-operation, as to present ideal conditions of economy and harmony, still one flaw would be found in our present educational machine. Freedom from party politics is so generally recognized as an essential of a good educa- tional system that it would be difficult to find any one openly ad- ITS HISTORY, ITS DEFECTS, AND THE REMEDY \) vocating the surrender of our public schools to the vicissitudes of partisan^control. Here if in any department of the public ser- vice should be placed men of special training and experience ; yet at this vital point the people of New York for nearly forty-six years have submitted to a system which if not controlled is strongly influenced by partisan considerations. The superiutend- ent of public instruction and his deputies enjoy the reward of faithful service to their party, and in their turn discreetly dis- pense favor to local aspirants. Although it may be true that political appointments are in some cases as good as those made in an honest effort to select for merit only, still this is the lucky chance, not the necessary result of a well considered policy. Some of our superintendents have undoubtedly been educational leaders whose records command the respect and admiration of all ; but others have been not only inferior in educational experience and attainments, but in some cases actually lacking in the sterling qualities which are demanded in leaders of the youth. And even if, for forty-six years, we had models selected by party leaders for this important position, what right have we to hope for similar immunity from disaster in the future ? Educational interests are growing yearly; more and more money passes through the hands of the administrative officers; how long will it be before even the pretence is abandoned of appointing for fitness or experience ? It is maintained that the direct appointment of the superin- tendent by the legislature or governor is desirable as bringing him more closely in touch with the people and their needs. This might be true in a Utopian republic, where the will of a right- minded people was reflected as in a mirror in its legislative halls. But under present conditions the will of the people is less authoritative than the gesture of a political boss. REMEDIES SUGGESTED If no other method were possible we should be justified in submitting to existing conditions; but if a plan can be found that will retain the present advantages and avoid the dangers, it clearly should be adopted. Unification in some form has long been discussed, and now that the consent both of the University and of the department of public instruction has apparently been secured, it remains only to decide how this can be effected best. 10 THE NEW YOEK STATE EDUCATIONAL SYSTEM Of the plans suggested, three are worthy of consideration: 1. Unification under a superintendent appointed directly by the legislature or governor. 3. Unification under a new hoard of regents elected one from each judicial district, with the governor an ex officio member. 3. Unification under the present board of regents. AN APPOINTED SUPEEINTEIfDBNT The first plan would throw into politics the entire State system of education with its large revenues, making it a tempting field for spoilsmen of both parties. If it is granted that freedom from party politics is a requisite of a good educational system, this plan must be abandoned at the start. ELECTION BY A SMALLEE ELECTIVE BOAED OF REGENTS The plan of placing the schools under the supervision of a smaller elective board seems at first glance to be a desirable solu- tion of the problem. The eight elective members and the gov- ernor make a good working number, and neither one of the existing organizations is absorbed by the other. But on more careful consideration, the danger of political manipulation again presents itself. Nominations and elections do not always put the best men in power, and in this case, the members being elected one from each judicial district, the tendency would be to make the ofBce of regent a consolatory offering to disappointed aspirants for public honors, or, worse, vantage ground for public representa- tives of local political bosses, in either case detrimental to the character and usefulness of the board of regents. If the election should be for a term of years instead of for life, as in the case of the present regents, the advantage, if any, of more direct de- pendence upon the people would not only be more than ofEset by. frequent changes and less interest on the part of retiring officers, but our educational system would lose the benefit of the whole- some protection against even attempted political domination which their life tenure now gives to the regents of the univer- sity. They are but human, like others who shall succeed them, and to the permanent tenure of their office, more than to else, may be ascribed the origin and unbroken continuance of their most honoring, distinguishing and important characteristic, their ITS HISTORY, ITS DEFECTS, AND THE REMEDY 11 absolute freedom from partisan political control. They now have no need to consider what might be the effect upon their prospects for re-election, if their conscientious action should not accord with the selfish purposes of some temporary political magnate. ELECTION BY THE PRESENT BOARD OF REGENTS But even with the second proposed plan working at its best, why should the voters be burdened with the selection of a new board when there is already in existence one that from the earliest history of the State has been identified with its educational affairs, has established and fostered the oldest institutions of learning in the commonwealth, and during the first half of the present cen- tury took the initial steps leading to the formation of the depart- ment of public instruction ? Since during a heated discussion lasting several months no convincing reason for making such a change was advanced, we are justified in considering the third plan, which proposed to entrust the educational interests of the State to the present board of regents. In examining the character and record of this board, we find a body of men identified prominently with public movements both in their own sections and throughout the State. Each one is a man of affairs, distinguished in his vocation and bringing to his oflBce experience of practical benefit in the deliberations claiming his attention. As a body they have the advantage of a history reaching back 115 years, and characterized by continual develop- ment and progress. Within the last ten years their efforts for the welfare of the schools and the safeguarding of professional inter- ests have attracted the attention of educators the world over, and many of the ideas and methods originating in the University of the State of New York have been copied by other States in whole or in part. In a recent rigid investigation of the financial record of the University, not only was nothing found to be censured, but the committee devoted a portion of its report to praise of the economy of the administration. Moreover, appointments in the regents office are made strictly on civil service rules, party influence hav- ing no weight either in selecting or in retaining members of the staff. This insures a high grade of service, and as positions are 12 THE NEW YOEK STATE EDUCATIONAL SYSTEM held as long as the work is satisfactory, there is every inducement to faithful fulfilment of the duties assigned. A study also of the elaborate examination, inspection, travelling libraries and other systems shows unusual comprehension of the great importance of co-operation in every part of the work. De- tail is reduced to the minimum, and duplication of labor is avoided whenever possible, so that in providing for the multitudinous needs of the 1305 institutions of the university the ground is covered but once and with the least expenditure of effort. The closer the study of the work of the regents, the more strongly must one be impressed with the dignity of the organiza- tion, the wisdom of their deliberations, and the ability of their administration. With such a body already serving the State in this very field, prudence and common sense point unquestioningly toward making them the Custodians of our entire system of education. New York State is progressive and energetic. It is surely a question of time alone when this desirable change will be brought about ; when by unification under a body of able, disinterested, devoted men, constituting a traditionally non-partisan board, we shall see our educational system administered with greater econo- my, with unity and harmony in all it parts, from the public kin- dergarten of our cities to the greatest university in the land, and on a plane as far above party politics as are our great scholars above " ward-heelers." Then even more than now may New York claim an educational system excelled by none. UNIFICATION OF THE SCHOOL SYSTEM A PRIZE PAPER -BY- RICHARD EDWIN DAY, LiTT.D. Analysis History of our School System 15^ Dual Educational Organization 15 The Best Basis of Unification 16' Kecord of the Administration of the Eegents 18 Eegents in Touch with the People 18 Stand by the System of our Fathers 19>' (14) Unification of the School System Education had gained a vigorous start in some of the American colonies before the Eevolution. But like other social institutions in America it lacked the impulse that comes from organization and direction. When the declaration of peace allowed Americans to turn their thoughts to mental cultivation, the citizens of New York State began to erect a system of education. A large ambi- tion possessed them ; they would build a university as wide as the commonwealth. Their purpose was somewhat vague, and the legislation in which it was embodied was the fruit of a compro- mise in which religion, secularism, aristocracy, and democracy were blended and balanced ; yet by virtue of these facts the edu- cational institutions of New York have attained their rich and varied character. Eleven years after establishing the University •of the State of New York, the Fathers, with foreseeing wisdom, began to lay a foundation for popular education. At first they were satisfied to make temporary provision by limited appropria- tions and lottery donations for their great object; but in 1805 they instituted a permanent fund for the support of common schools. DUAL EDUCATIONAL OEfiANIZATIONS For nearly a century two ofiicial organizations, one devoted to advanced and one to elementary learning, have developed side by side in this State, but not always harmoniously or equally. The relations of the two departments, occupying the same geog- raphical field, each with extensive responsibilities, could not be free at all times from antagonism; nor could their provinces be kept entirely distinct. The history of legislation and constitu- tional conventions in this State for a third of a century testifies to the conflicts within the dual system and to the desires of educa- tors and statesmen to effect a consolidation. An instance was (15) 16 UNIFICATION OF THE SCHOOL SYSTEM afforded in the constitutional convention of 1867-8. The committee on education reported an article one section of which contem- plated the creation of a board of seven persons to have " general supervision of all the institutions of learning in this State." The section was eviscerated by the adoption of an amendment offered by Judge Comstock, restricting the supervision of the proposed board to the common schools ; and on final vote it was rejected. George William Curtis vainly advocated in the conven- tion the creation of a board of education to have " general super- vision of the common schools, and such care of all other institu- tions of learning which receive aid from the State, or which now are or hereafter niay be subject to State visitations, as the law may prescribe." Such was the fate of one attempt to unify the edu- cational system by depriving the regents of their authority. In the legislature there were similar attempts. The session of 1870 and that of 1874 witnessed the introduction and the peaceful death of bills designed to abolish the board of regents. An effort at unification more moderate and more nearly successful was the Magg bill of 1870, which proposed that a department of educa- tion, with a State superintendent, be established in place of the existing department of public instruction and the existing super- intendent, and required that the regents annually report to the new superintendent. The regents' supervision was to be extended to the normal schools. This bill reached the governor, the last day of the session, but did not receive his signature. The legislature of 1874 saw the introduction of a measure more nearly consonant with the best public opinion, which passed the senate 21 votes to 4, but failed in the assembly at the termination of the session. The intention of this measure was to reorganize the board of ijegents, but vest them with the powers of the superin- tendent of public instruction, and empower them to appoint and remove that oflBcer. The administrative and supervisory powers of the regents ofBce were not to be impaired. THE BEST BASIS OF UNIFICATION If a review of this period exhibits a persistent tendency to unite the two departments, a longer retrospect impresses the historical student with the desirability of extending the authority of the University of the State of Xew York as a basis of unification. UNIFICATION OF THE SCHOOL SYSTEM 17 The entire history of this institution attests its devotion to popu- lar education and its fitness to administer so vast a charge as the public school system. A report of the regents issued Feb. 15, 1787, contains these words: "The erecting public schools for teaching reading, writing, and arithmetic is an object of very great importance, which ought not to be left to the discretion of private men, but be promoted by public authority. Of so much knowledge no citizen ought to be destitute, and yet it is a reflec- tion as true as it is painful, that but too many of our youth are brought up in utter ignorance." The University gave an ener- getic impulse to the institution of a system of elementary educa- tion. The law of 1795, by which an appropriation was made for the encouragement of common schools, was due in no slight de- gree to the repeated exhortations of the regents. To the legisla- ture of 1793 they addressed these words: " We cannot help sug- gesting to the legislature the numerous advantages which we conceive would accrue to the citizens in general from the institu- tion of schools in various parts of the State, for the purpose of instructing our children in the lower branches of education ; such as reading their native language with propriety, and so much of writing and arithmetic as to enable ihem, when they come for- ward in active life, to transact, with accuracy and dispatch, the business arising from their daily intercourse with each other. The mode of accomplishing this desirable object we respectfully submit to the wisdom of the legislature. The attention which the legislature has evinced to promote literature by the liberal provision heretofore made, encourages, with all deference, to sug- gest the propriety of rendering it permanent by setting apart for that salutary purpose some of the unappropriated lands." The following year the appeal was urgently renewed; and again the year after, with satisfactory results. The attitude of the regents toward elementary instruction has been consistently helpful, while their direct influence on public schools by means of exam- inations has been steady and potent. Within a few years their service in the cause of popular education has given birth to such beneficent activities as university extension and assistance to home reading. At the same time the facilities of the State library, under the care of the University, have been applied with increas- 18 UNIFICATION OF THE SCHOOL SYSTEM ing liberality and inventiveness to the promotion of popular in- telligence. KECOED OF THE ADMINISTRATION OF THE REGENTS In the field which has been the particular province of the re- gents oifice, its influence has been conspicuously fruitful. Un- der its direction high schools, academies, and professional schools have multiplied and flourished. The colleges which it has char- tered are in many cases eminent, and in all cases respectable ; the schools of secondary education are among the best; its training schools for the professions show the benefits of worthy standards jealously guarded; while the degrees it bestows as well as those whose bestowment it authorizes are everywhere honored. Private schools have found their rights secure under its guardianship; and religious schools have suSered no invasion of their privileges. Who can doubt that primary education in the Empire State would be benefited if the common schools could be reached by the ad- ministrative energy and uniform supervision by which secondary and professional education have profited ? Any one who has observed the influence of party politics on departments of government, and deplored the perversion of pub- lic trusts to partisan advantage must perceive in the freedom of the regents from political dictation an eminent qualification for the management of the consolidated school interests of the State. Though elected by the political parties, these oflBcers have found in the life tenure, in the gratuitous nature of their services, in their distrbution among the different professions, a sufficient de- fense against the persuasions of partisanship. EEGENTS IN TOUCH WITH THE PEOPLE I cannot regard as worthy of prolonged examination the asser- tion, occasionally met, that the regents are too removed from the people to be suitable guardians of popular education. Who are the regents? They are men in the various professions, but a number are journalists. Whatever consideration has often sug- gested to the legislature the wisdom of electing an editor to the board of regents, the frequent choice of a newspaper man has promoted closeness of relations between the regents and the people. Of all professions journalism touchy society at the UNIFICATION OF THE SCHOOL SYSTEM 19 largest number of points, and Journalists are most fitted by train- ing and experience to give expression to popular ideas. If the State were seeking to construct an ideal system to ad- minister its educational interests, could it do better than to lodge the authority in a board of educated men, chosen by the people's representatives, drawn from all parties and denominations, as well as all professions, pledged by reputation and standing to a faithful discharge of duty, and shielded by the life tenure and the gratuitous character of their services against political influence and the pressure of class or section ? STAND BY THE SYSTEM OF CUB FATHERS The University of the State of New York was founded in the formative period of the nation, struck out by the same shaping genius that produced the federal constitution. That political instrument was not a " paper constitution ", for it embodied the political experience of English-speaking men. The act creating the University of the State of New York was not a paper scheme of education, for it drew its suggestion from the ancient univer- sities of England, adapting the idea to American conditions. As the federal constitution has expanded and changed in obedience to events, so the educational system of New York has adjusted itself to circumstances, proving its flexibility and vitality. The possibilities of national growth under the federal constitution appear immeasurable. And it is diflBcult to assign limits to the development which the educational institutions of this State may attain under the system planned and established by the Fathers. Memorandum In the summer of this year some unnamed friends of educa- tional progress offered two prizes of $100.00 each for the best articles by a man and a woman, respectively, upon the subject of the unification of the educational system of this State. The prizes were awarded for the accompanying papers. The winner of the man's prize, Mr. Eichard Edwin Day, is a scholar of fine culture and varied literary experience, and as a former teacher and writer upon educational topics is well ac- quainted with our educational system. He was born April 37, 1852, in Oswego County, in this State; prepared for college at Falley Seminary, at Pulton ; took his col- legiate course at Syracuse University, graduating in 1877, and earned there his master's degree upon examination in the follow- ing year. That institution further honored him during the past summer with the degree of Doctor of Literature. In 1879-1880, Mr. Day was assistant editor of the Northern Christian Advocate, and during the succeeding 18 years was an editorial writer and literary critic upon the staff of the Syracuse Standard. He now resides in Albany and is an examiner in the Eegents' office. The modesty of the writer of the woman's prize paper, Miss Sara Elizabeth Stewart, further than her admirable paper itself speals, leaves us without other disclosed knowledge of her than that she has been a public school teacher in this State, and is now teaching in "Washington, D. C. EDUCATIONAL UNIFICATION. Advance proof-sheets of The School Bulletin for December The School Bulletin The School Bulletin A MONTHLY JOUKSAL FOR TEACHEKS SUBSCRIPTION, ONK l>OLLAR A YEAR SINGLE COPIES TEN CENTS C. W. BARDEEN, Editor aiid Proprietor SYRACUSE, N. Y. The followint? jouruals ci^iistitute The I-Mucatioiial Press Association of America, and subscriptions to any of them may be ordered throui^li ns. All are monthly except the Mic/iigan Moilerator, and Canadian 7'earfifr, -which are bi- weekly ; and the Xt^w England Journal of Education, Xew York School Journal, and Educational Xcwti, whicVi are weekly. American .Journal of Ed'n. ^1 Am. School Hoard .Tonrnal. !fl Am. Primarv 'I'eacher, $1.(10 Canadian Teacher. ifl.flO Colorado School Journal, i^I Education, if3. 00 Educational News, Jl.no Florida School Ex]H.nent. !fl Northwestern Jlontlilv, M.50 Ohio ICd'l Monllilv, $1.50 ra. School ,T(nirnal,*l.fiO Popular Educator, Jl.OO Primary I'.ducation. .Jl.OO Primary Scliool.ifl. CO Public School .lournal, School Bulletin, !fl. CO 1.50 Indiana SchoolJouriial, 11.. W School Edm-ation. SI. 00 Interstate Review, Sd.OO KindersMrten Review , J2.0(l Michisan Moderator, J1.60 Midland Schools, 81.00 Missouri School Journal. $1.2.5 N. E. Journal of Ed'n. Ji.^0 News and Praeti'l Edr. $1.00 N. Y. School Journai. $3..50 Southern School, $l.tiO Teachers' Institute, $1.2.5 Teachers' \\orM, $l.i;0 Texas School JouriKil. SL.W Western School Journal, SI. 26 Western Teacher. $1.00 Wis. Journal of Ed'n, $1,00 SYR ACl SE, N. Y., DECEMBER, 1899 The Educational Commissioii As reported in another eolnmii, the Edu- cational Unification Commission held their first meeting at Albany on Xovember 27th. Even the meagre reports given in the news papers of the proceedings disclose their im- portance and foreshadow the action of the commission, which undoubtedly will recom- mend imJfioatioJ* of ovaf oi-itii-o ^^itito oI>eeem%er-W-; foF their lnosrheTpTiir gCrTcrancequite differ- changes are not of great importance. For "While we are much gratified that they ent qualities, preliminary training and ac- that reason alone, they should not be made propose to accomplish unification substan- quirements, in the desirable directors of the The actual consequences of any change can- tially as we have urged — under the regents two systems. All this is quite obvious to not easily be apprehended All the ele- of the university, with their chancellor for experienced educators, and the commission- ments of the constitution of the regents chief educational executive — we regret that ers should be guided by their expert judg- of the university have worked together the commission should have given encour- ments in such matters. And it may be harmoniously for a hundred years to develop agement, even tentatively, to needless and added that either field of labor in this State, their organized desirable qualities, and there harmful jwoposed changes in the constitu- the directing of elementary or of secondary should be no needless legislative experi- tion of the board of regents, and an illogical education, is work enough for one depart- menting now upon the constitution of that classification of public schools. ment and responsibility enough for one di- body. Emphatically, let well enough alone. Xothing can be gained by the suggested rector. To put upon any one man the care We earnestly hope that our views are in dropping of ex officio members, and some- coincidently of the two classes of schools, accord with those of the Unification Com- tiling may be lost. Their presence in the means greater or less unavoidable neglect, mission. Certainly the thoughts outlined board is never detrimental, but often useful or failure fully to apprehend the needs, of have and increasingly will have the support in promoting a better understanding with one class or the other, if not of both, of experienced educators and intelligent an existing official administration of the To get such, in many ways unrelated professional men generally. gtate government. They also help to keep schools, under one domination, is the old MEDic.VL PKOFES.SI0X INTERESTED tlie.board in closer touch with prevailing unquenchable anxiety of the present de- The medical profession especially will be public sentiment. partment of public instruction, and against unwilling to have changes made in the con- As before indicated, we do not approve this our best teachers have again and again stitution or tenure of office of the board of of making the age of 70 an arbitrary limit protested. Now is the time for them to be regents which in perhaps unforseen ways to a regent's active usefulness, as the com- heard once more, from one end of the State might lessen the independence and reliable missioners propose. And it is quite needless to the other, and so explicity that the mis- impartiality with which that body has ad- and illogical to favor lessening the size of the taken thought will be rejected by the com- ministered the system of medical examina- board of regents, and to approach such re- missioners at their next meeting ujion De- tions that has done so much to elevate the d notion by the present appointment at one cember 14. Teachers of all grades, and standard and character of that profession, swoop of nine new members ! The sudden especially those of secondary schools, should — with marked benefit to both its members injection into the board of so many inexperi- speak out vigorously and promptly and let and the public. eiiced persons cannot be judicious, and, what- the commission have the benefit of their Legislate to bring the whole educational ever the motive, it clearly is an unwise exam- enlightened views upon these important system of the^State under the regents' de- pie to set for the incifement of future legisla- questions. voted and responsible control, charging only tures which for unworthy purposes may wish A final word to the commisssioners. so far as necessary existing provisions of to change suddenly the character and control It is earnestly hoped the commission will DECEMBER, 1899] ^HE SCHOOL BULLETIN 59 realize the danger of failure to their desires tion bill of last winter was that it was of education, he thought it would be in if they try to do too much. There is and framed and modified in the interest of per- everyway better to confer the powers of will be a substantial unanimity of sentiment sons in place who wanted. to keep in place, that ofTiee upon an olfiee already existing throughout the State in favor of educational The new law should be framed with refer- and bearing a most desirable relation to the unification under the regents of the univer- ence to principles^not to men now in office, existing systems, namely, that of chancellor sity with their chancellor for chief executive. He would propose *«new officer, to be of the university. That office, vesteu with This constantly strengthening sentiment will called commissioner of education, to be these powers, and given the tenure and sal receive legislative recognition and acquies- elected by the regents, and to be vested with ary of judges of the court of appeals, would ence. But to attempt at this time more t^e executive powers now conferred on the be the most desirable educational position than that, whether well conceived or not, regents and on the State superintendent. in the United States, and would command or to endeavor to crystallize into statutory j^ ^-^^^ ^^ necessary to change the con- ^^^ ^^^^'^^ of any educator, however emi- law many details, will arouse at each step ,tit„tion of the board of regents. He was "^"*- ^^' establishment would elevate and opposi lon and multiply centres of conten- ^^^ ^j^^^ ^^ ^^ ^^^^ p^^^^p, ^ ,^^^,,^ ^j^^^^^ dignify the entire teaching profession, t.on whose dividing activities may wreck the ^^ .^^-^-^^ districts, perhaps one appointed I" answer to the question of Mr. Holls, whole plan. This is what the enemies of ^^ '^^ governor. Personally his own deal- Dr. Maxwell said his experience with boards unihcalion desire and one ot the ways in j^^^ j^^^ ^j^^^^^ ^^^^^ ^^j^j^ ^^^^,^^ ^j^^^^^ ^^^ of education tended to favor long terms of which they wdl seek to accomplish their ^-^^^ ^^^ ^^ ^^^^ favorable to that. He had oHfice. He had always felt that when he obstructive purpose. ^^^^ ^ ^^^^ ^^^j ^^ ^.^^ present board of re- had a good man upon a board of education \Ve repeat, in substance, legislate for the ^^^^^ ^^^ ^-^ ^^^ ^^^ how a better board he wanted to keep him there. He would suggested unification, pure and simple, and ^^^j^ ^^ ^ together, not approve of an age limit for the board leave to be worked out by the ordinances of „, . . . , , ^ . , , of rpo-pnts MmnT .nor, „,m„m i, ih^ ro„o,,to fi,. „ <■ A , -1 w^i This commissioner should appoint heads "^ regents. Many men would be more tlie regents the consequent details. With „ , ^ , , „ , efficient in ilmt nnoi^■;r^r, aH^r. o«,.„ + ,• „ , ,., ;. .,, ^ of departments— a bureau of elementary ®™^'^'^'^ '° ^'^^^ position atter seventy years more time for deliberation, with greater ex- , .^ ,, j, . i , • , than before ^^^i -1.,,^ , -1 J .• 11 J I J- j; education, another of secondary and higher ''"<*" "eioit. pert knowledge and tnller understanding of , ^. „ „, -, , • „ r. a/t-i n ^ x +!,„ , 1 * iu • LT, ^ 1 ii education, another ot home education. He i>r. Milne was recalled to answer this same ttie needs ot the service, the regents, better ,, , -,, , , .• -, -,■.■-,., „„ n „ ■ I 4-1, iv ■ • would most assuredly keep separate the con- question, and answered it in like manner, and more wisely than the commission or any , , „ , » A , „ , o • • i r. l h ^t t.-. 1, • 1 .• •,, , ,, ■; trol of secondary from that of elementary rnncipal Boynton of the Ithaca high legislative committee, can gradually, and , ,. .1- ■ i , , , , i i -p li i ■ •., ., .^ „ . ■,, 1-1 f J J education. In his experience he had found school lolJowed, agreeing with the previous not with dislocating suddenness, arrange, ^, , •, ^ , • ■ , , „ i ^ xi, i • , •,• „ .„ 1 »• i- . • T that secondary teaching required a class of speakers as to the desirability of unification and rearrange trom time to time as chang- , , ,■ -, -,-^ , } , „ , j ,, . •. i , -, , , , , ^^^"'^i, , , ,, • i, 1 • teachers entirely different from those fitted and that it should be brought about by trans- mg circumstances shall require, the desir- , , , x i m, , t ■ i. i .-, -, ,, , ,. . . . ,1 ■ . , to do elementary work. The work was on terring control over the department of nub- able sub-division of their supervisory work j-a. i. i . , t^ i- • ? a- i. xi x r,- , ^ ^ ■ •. i 1 -i , , ,• -, ^ difierent plane, was based on different lie instruction to the regents. He thorouffhlv and assign it to such suitable executive de- ... , , -, , j-^ x -n i . ^ * i- i i ^^^^'^^'^y J. , ^, . , a X- 1 11 principles, looked to different ideals, and approved ot making the chancel or of the partments as their mature reflection shall \, , -, , -, , , , ' ■ -i. ,. -.■% ,■ ,^ lead them to organize. If the regents are '^""^"^ ^' ''"'^'' ^^P"'''^' °"'^^™^- university the chief executive officer, and to be trusted at all, give them freedom for ^^ ^^^^^e"" *« ^^^ 1"e«"on of Mr. Holls he would keep separate the supervision of such responsible action as shall make possi- "^^^^^^^ ^^ ^"""^^ ""^^'^'^y ^^^^ool^ according elementary from that Jof secondary educa- ble their highest usefulness to our ednca- *° whether or not they were supported by t'o^i' ^i^h other departments, the head of tional system. public money, he fepTIM^empratically not. each to be eleeted by tfe« regents, wJio should - — — It was the kind of work that made the dis- have power to appoint every official whose Meeting of the Educational" Commis- tinction, not how it was paid for. salary was not less than $1,500. Sion There is an especial reason why this class- Mr. Bardeen followed. He found himself ification should not be made. A large por- in so much accord with the speakers who had ihe hrst pubiic meeting of the educa- tion of what are now academies are church preceded that he would dwell only on the tional commission was held in Albany on schools. It would be a misfortune to sepa- points in which he differed from them and the afternoon of Nov. 27. Invitations to rate these from the public high schools. It upon one or two points in which he agreed appear before the commission had been sent is desirable that the pupils growing up in with them which he wished to emphasize out to the following six men: President the church schools should be kept in touch He desired to say, as any of the speakers iaylor of Vassar college, Sup't Maxwell of as much as possible with those in the pub- would have said if they had been asked, that N ew York city, President Milne of the Al- lie schools. the criticisms which had been offered should bany normal college, Principal Boynton of Sup't Maxwell of New York was next not be understood as implying that good' the Ithaca high school. Principal Goodrich called upon. He said his attention was first work was not now done in both departments, of the Utica high school, and Mr. Bar- directed to the necessity of unification after of education. In the one'department the deen, the editor of the School Bulletin, the passage ot Chapter 1031, establishing uniform examinations and the teachers The commission met at two o'clock in the definite requirements for the position of classes, and in the other the regents exam room of the ways and means committee, teacher in the primary and elementary inations and the library system were un- Mr. Holls was elected chairman, and Judge schools of cities and villages. One of these doubtedly models for imitation and were Daly secretary. All the members were requirements calls for graduation from a being followed in other States so far as their present except Mr. McMillan, who is tem- high school or academy, the course of which means and opportunities allowed, porarily m Colorado, but who hopes to be is approved by the State superintendent. , He agreed with Dr. Maxwell that the call present at the next meeting of the com- This made necessary the establishment of a for unification was for evolution, not for °"^®^°°- department of high school inspection in the revolution. Changes made should'be in the Mr. Holls stated that the purpose of the department of public instruction, which led direction of growth, not of substitution commission was to confine itself to the ques- to dual inspection and other complications For this reason as well as others he entirely tion of unification, and that the speakers in secondary schools. agreed with Dr. Maxwell that the control would be asked to limit themselves to that He agreed with Dr. Milne that the need of both departments should^'be conferred phase of the educational question. was manifest for unification, and as to the not upon a new officer, but upon the chan- Dr. Milne was first called upon. He said: necessity of keeping separate the supervision cellbr of the university. The sentiment for unification is practically of elementary from that of secondary edu- He had positive views also in regard to unanimous. The present system leads to cation. He thought I^r. Milne's general the constitution of the board of regents duplication of examinations, of inspection, proposal was desirable ; but instead of creat- There were many reasons why no change of expense. One trouble with the unifica- ing a new officer, to be called a commissioner should be made. In" the first place, change (30 THE. SCHOOL BULLETIN [vol. xxvi, no. 304 IS 111 Itself undesirable. The board jisjiow department of public instruction all schools Richard Edwin Day, Litt.D. Mr. Day is constituted has been in honorable and sue- supported by public taxation, and under the somewhat generally known as a scholarly cessful existence for more than a century, regents all those supported from private man of extended journalistic experience. It has the prestige of age and an honorable funds. having been for nearly twenty years an edi- history. If one legislature undertakes to He would not, htj^^ever, leave the election torial writer and literary critic, "chiefly upon make changes in i(, an example is set for „f the superintendent of public instruction the Syracuse Standard." He is a graduate other legislatures. The time may come in the hands of the legislature. In this of Syracuse University, from which he re- when an unworthy legislature may attempt matter the legislature did not represent the ceived in the present year his degree of to change it for unworthy ends. It should people. A body of 200 men elected with- Doctor of Literature. be remembered that the educational system out any reference to their knowledge of edu- In a memorandum accompanying their ot the State involves the expenditure of cational matters was not fitted to chose so distribution to the public press of advance several millions of public money, and if it responsible an oflficer. He would put the copies of the winning prize papers, which becomes a habit to make changes in the appointment of the superintendent abso- we print in this number of the Bulletin, the board of regents the temptation may come lutely in the hands of the governor, without Committee say of Miss Stewart that her to an unworthy legislature so to change the necessity of confirmation. There has never modesty has left them without further board as to put the control of these funds been a governor who would not rise to such knowledge of her than that she has been a into the hands of a ring. But until the ex- an occasion as that and appoint a thoroughly public school teacher in this State and is ample of change has been set the legislature worthy man. The salary of the superin- now teaching in Washington, D. C. We will be slow to undertake any such manipu- tendent should be a great deal higher, at learn from another source that she is a ^ "^^^' least as high as that of any college president graduate of Wellesley college, and certainly But apart from the objection to change, in the country, and the term of, office should she confers honor upon her alma mater. Her he doubted whether if the board of regents be at least double what it is now. He admirable paper, which is the more com- weretobe constructed anew a better sys- agreed with what had been said as to in- prehensive one, shows that she is thoroughly tem could be devised. He had studied care- creasing the power and salary and dignity acquainted with the workings of the present fully the question of life-tenure. Statistics of the officer of chancellor of the university, school system of this State and is master of show that the average length of service of which should be made in every way the her subject. the members of the board of regents had highest and most responsible educational g^e makes to stand out with great clear- been almost exactly fourteen years, just the position m the country. ^^^^^ ^^^ ^^.^^ ^^ ^^^ ^^.^^. ^^^,^^ ^^^^^,^_ limit proposed by those who are seeking a Hi anssver to a question Mr. Cole said that tional system, and all the logic of her reason- change There are a good many advantages when an academy or a college became sup- ing, and indeed that of both prize papers, in ife-tenure. In the first place it attracts ported by public funds then it should be runs irresistibly to the conclusion that the a class o men who might be unwilling to transferred to the department of public in- highest welfare of our schools imperatively assume these duties without this considera- struction, and in answer to another question demands educational unification and that the tion. In the second place it puts the mem- said that he believed this would eventually same should be accomplished under the Re- bers beyond political control. We all know be true of all institutions. gents of the University, whose traditional the effect of the present three-year tenure .. Then »H«#er- your pla/i the ^.egc^-»^ portioa.. oharaotci. g^-d other recognized ot office of the superintendent of public ^o^j^ eventually disappear by dry rot?" qualities lead both writers to regard them as instruction. Mr. Bardeen was glad to say suggested Mr. Dewey, to which Mr. Cole an almost ideal organization On the desired for the present superintendent and for his assented. purpose. "'-^ ' predecessor that they had in many cases t i, r/ t> i c 4.1, r> 1 n 1 ^ , i,r j i. j i.i i. i.i • ^"V^ .,1 , -, 1.,. , , , John II. reck ot the Rensselaer Pol vtech- We understand that the prize papers a»e withstood enormous political pressure; but •-,•,, , ,..,-, i. 1. • -, ■ i , ^ . -, ., , „, 1 i, , „ ,, nic institute was present and was also invited to be issued m pamphlet form and that as was n-ell known to the members of the , 1 rr j.{^ 1.. .i , • , , , • f .• » ., tt • . . ,, IT , , .,, , - to speak. He thought there was a clear copies may be obtained grati.'! from the Uni- coxmission, they had not always withstood .■■■,. ,,■ j • ; -, a \- t, ■ n -ix x n 1 at ^r ., r, 1-11 •, , ,, , .,, ,n division between public and private educa- iication Prize Committee, at Palmyra, N. Y. it. It was hardly possible that with the ^. i, x i, ^ . ■ ■ i, mi , n , • i , n ,,^ ioii-.i ■ , 1, tion, but he favored increasing the power The papers should be widely read and short term of office of the superintendent j j- •<. c .1 . n 1 n i j^ n -n n mi i J, 1.1- • , ,- ,, 7,1 T and dignity ot the chancellor, as had been carefully considered. They deepen our con- ot public instruction all unworthy demands j i- -j-ii ^x. ,, r^ ■ .• li . .1 oi. j. i? at at 1 • „ , » .1 1 . 1 J T , -, , proposed, making it the most honorable office viction that the State of New York is very of members ot the legislature should be re- • ,, . tt 1 -xi 1 • , i? x x ■ i ■ • -x , ,, . , , ^ -xi 7 ,. ™^ . „ in the country, tie spoke with much pride fortunate m having m existence such a well- sisted. Even with a term ot office of four- * xi, r, , . ,, • r x-x x i,i..-jxxj j- x=xx- . ^■n -, ,, , ,, . ■ of the Polytechnic Institute, whch he said tested and in every way fittingly qualified teen years it IS easy to see that as the period i ■, ^ ,, xV • x-x x- ■ x- xi ti x i. x, tt • . , , , ,, , , ,,.-,, had done more than any other institution organization as the Regents of the Uniyer- terminated, and the regent naturally wished j? x. ax x x e -u xi, ox x -T u- 1, x ^.x xi -o x- ^,, ,, ,,. •'., 01 the State to conier honor upon the State sity, upon which to engraft the unification to be honored by re-election, pressure might • xu- x j i, j i- -x x- 1 1- ^ ^ , , T,x X 1 I- . T • . ,? m this country and abroad. of its entire pubhc school system, be brought to bear upon him ot a kind that does not now exist. ^^^ *^^ conclusion of these remarks the ,,^^^^^^^,^^^ i ■ XI. x^ X XI x x, T , commission went into executive session, in- Again the act tha the members are be- ^■^. ^^^^^^^. j^^ Lincoln of the statu- Addresses of the Commission on yond political control discourages political commission to remain. It is under- Education manipulators from seeking to elect as re- ^^ood that the commission will at this meet- gents the kind ot men who are submissive • ui i x x x x- 1 j? -n ^■ to political control and has thus nlaced un '^^ ^lock out a tentative plan for unification, Hon. Frederick W. Holls, Yonkers, to political control, and has thus placed up- ^^^ ^^^^ ^^.^^^^ ^^^ ^^^ ^^^^^^ ^^^^^ .^ ni,,i,^,„ on the board men whose motives have always x x j i, • • -x j • xi. x- , unairman. . . ■' terested being invited m the meantime to been above suspicion. ^^^^.^ criticisms of the proposed plan to H°"- '^^^^T?^ ^- ^^''y. 32 Nassau st., New Sup"t Cole of Albany, who had entered the commission. York, Secretary. the room to visit his friend Mr. Wilkinson, was urged to speak. He said he entirely Hon. Daniel H. McMillan, Buffalo. disagreed with all the previous speakers. Unification Prize Papers Hon. Robert F. Wilkinson, Poughkeepsie. He did not believe in unification. He Hon. William E. Kernan, Utica. thought both departments were doing good The prizes offered last summer by un- j, ^ Ainsworth, Deputy 'Sup't Public work, and would do better work separate as named persons fijr the best essays by a , . r j r now. The work of the commission should woman and a man upon the subject of edu- 1"®'^'''^°"°^' Albany. be to define the boundary between them, cational unification in this State, have been M civil Dewey, Secretary Regents of the and this he would do by putting under the awarded to Miss Sasa Elizabeth Stewart and University, Albany.