LEGISLATIVE CONTROL STATE NORMAL SCHOOLS #S9 mm WM GforttcU BntucrHity ffiihranj Dtljara, Nwn fork Columbia -University library in..excha3agA Cornell University Library arW38342 The legislative control of state normal 3 1924 031 763 000 olin.anx THE LEGISLATIVE CONTROL OF STATE NORMAL SCHOOLS BY LAWRENCE BENJAMIN HILL Submitted in Partial Fulfillment of the Requirements foe the Degree of Doctor of Philosophy, in the Faculty of Philosophy, Columbia University NEW YORK 1921 Copyright, 1921, by Lawrence B. Hill ACKNOWLEDGMENTS THE writer is indebted to Dean James E. Russell, of Teach- ers College, for pointing out the field of this study ; to Pro- fessors William C. Bagley and David Snedden, of Teachers College, for constructive criticism, guidance and encouragement ; and to his many normal school colleagues for assistance in furnishing the data. Cornell University Library The original of this book is in the Cornell University Library. There are no known copyright restrictions in the United States on the use of the text. http://www.archive.org/details/cu31924031763000 CONTENTS Page Introduction 7 Chap. I. Legislative Provisions for the Control of State Educational Institutions .... 11 The Data Graphs Summary Chap. II. Significance of Different Types of Boards of Control 86 The Function of a Board Types of Boards Multiple vs. Unit Boards Detailed Provisions for a Unit Board Summary Chap. III. Provisions Relating to Teacher Training Agencies Proposed for Legislative Enact- ment 124 State Board of Education Distinctive Features of Proposed Legislation Chap. IV. Results of Suggested Provisions .... 131 Details of Forms Recommended Appendix A. Type Reports 158 Appendix B. Comparative Costs 163 INTRODUCTION State-controlled institutions have at least two important parts in their make-up. The one part consists of certain regulative provisions made by the commonwealths which sanction the ex- istence of such institutions, and which set forth in very general terms a few provisions for their control. The other part con- sists of the administrative machinery of the institution itself, its materials, programs, traditions, standards !and methods. The latter part concerns many people; the first part compara- tively few. The many often realize that the processes of the institution are influenced by the first part, but they fail to see or understand how, when, or why. The few people who are re- sponsible for the first part are generally well-disposed towards the many and intend that all their actions shall work advan- tageously for them; yet they often fail to realize the effect of such actions upon the processes of the institution itself. The importance of the interplay of the two parts is often overlooked, and those working diligently in the one often wonder why the other is not more efficient. The public at large is interested in aims and results, and rightly views these two parts of in- stitutional life as essential factors working as one unit to ac- complish the originally conceived purpose. For seven years the writer has observed, from two different positions within state educational institutions, the interplay of the two parts mentioned above. He has collected evidence that the efficiency of a state educational institution, particularly one whose duty it is to train teachers, may be affected by the legislative provisions made for its board (or boards) of control, by the board's conception of its own duties, and by the ideal which it sets for the personnel of the institution, especially for the chief executive. The problem, therefore, is to show how the provisions made by legislative enactment and the interpreta- tion of these provisions, affect teacher training agencies. It is 8 Legislative Control of State Normal Schools taken for granted that a large part of the efficiency of any edu- cational institution is due to the persons most intimately con- cerned with its work, — the classroom teachers and the students. More generally speaking, efficiency is accomplished through the teaching that the institution provides. It is our contention, however, that the teaching is vitally affected by the provisions for control, and especially by the interplay of board and execu- tive head of school. Out of this accepted assumption, certain questions arise: — What is the best type of board that a state can provide by legislative enactment for the control of its teacher training agencies? What details should be included in the provisions of the law? What kind of organization should the board provide for its own work? What kind should it pro- vide for the work within the institution itself ? What evidences are there that many states need to modify their legislative pro- visions relating to the control of teacher training agencies? What advantages would come to these institutions from such provisions suggested by the answers to these questions? Most of the material relating to legislative control of educa- tional institutions is found in the statutes of each state. In every case the special compilation of school laws was consulted as a help in interpreting the statutes. The provisions for edu- cational control were carefully charted as found in Chapter I ; graphs were constructed showing the relationship of the differ- ent provisions such as found in Chapter II; these, together with certain other data used in the study were sent to two or more selected men in administrative positions in each state with the request that they check each item for accuracy, and supple- ment each part so as to make the study complete and typical for their own state. Much of the objective material used in Chapter III was collected while the writer was in administrative work in a state normal school and could secure it at first hand. Other schools were visited, new material collected and the old verified in this way. The forms suggested for use by boards of control and by institutions were constructed out of practical ex- perience, and by comparing those used by the writer with simi- lar forms collected from other state normal schools. These Introduction 9 forms, together with other material, are on file in Teachers College, Columbia University. Many of the opinions quoted in this study are frank statements made by one administrator to another rather than statements worded at the request of a stu- dent. The statutory provisions relating to the control of educational institutions have been collected from forty-four states. Since the study is centered upon special teacher training institutions, primarily upon state normal schools, the states of Delaware, Florida, Nevada, and Utah are omitted because they have no typical state-controlled normal schools. The data contained in Table 1 are intended primarily to throw light upon the manner of controlling state normal schools ; hence, the board controlling the normal is placed first in the outline. Boards controlling state universities are placed second, and are included because of the activity of universities in training teachers. The other boards listed are boards of educational or financial control, and are included in order to show the type of state control and be- cause of their interrelationship with teacher training activities. The boards listed include practically all the boards provided by each state for educational control. Those omitted are minor ones which, if included, would not affect one's understanding of the state 's type of control. At the head of each board in the list is placed the state superintendent or commissioner of edu- cation because of the relationship which he sustains to many boards of control. The method of procedure in presenting the problem and its re- lated questions was (1) to select and exhibit the data which are germane to the questions; (2) to present the advantages and disadvantages of the details involved; (3) to present authorita- tive opinions and studies in the field of educational and business control which have set certain criteria; (4) to judge by these standards and criteria the efficiency of existing forms of edu- cational control of teacher training agencies; (5) to suggest provisions for future legislative enactment for the control of teacher training agencies; (6) to set forth certain advantages to a state-wide program for training teachers resulting from such legislative provisions. CHAPTER I LEGISLATIVE PROVISIONS FOR THE CONTROL OF STATE EDUCATIONAL INSTITUTIONS Section A The Data The purpose of this section is to exhibit the main legislative provisions that relate to the control of state normal schools and state universities, and to the control of other state educational in- stitutions. All existing legislative enactments relating to state normal schools are represented in the data. Most of the legis- lative provisions and constitutional enactments relating to state universities are included. Sufficient examples of legislation re- lating to other state educational institutions are given to set forth clearly the type of general educational control in each state. It should be noted that the outline presented in Table 1 provides seven items, each more or less important for the control of educational institutions, as will be shown later in the study. Under the name of each state will be found (1) the exact title of each governing body; (2) a brief statement of the function of that body; (3) the number of members, distinguishing between regular and ex officio members; (4) the qualifications (wherever they were listed in the statutes) ; (5) the method of choosing the members; (6) the length of term; (7) the compensation. 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D ■d d ?"° IS o M CD H <0 a o Appo e go nflrm nate. a ^ v o .2 .2 o « o°8 a ot» d o> i -d" 3 o ■^"^ CO 1h m (h ■ O O M-g e- g-g ■w SB o n rt Sag" 6 a M « p» d a; j> S® | t- d to ■S,s * a d ,3 » is « d o _^ "a £§ . .2 £ to ago H da H o (-«-< s . g> o,g fl °Sfed rif? sion tere the cati to s s„5h as S3 So. 3«1 eneral sup educationa operate w Vocational o» '■P I O Jss < -1 in o ui C3 z o I (0 CO < I- r( til » 8 8"S a 2o * ID a o © 2! ■Soo a O) ,3. D o ■a o -If no 3 Is f< P.t- no oj U +j o £d bfl ft a 3 'I 1 5 * * a > <» 6 ® .^ @ S o. a £ s ib S I »i6j CO +J lfl a *o 5 of to § M § ■2goS |S° p, -u "S o ™, - o "3t: ©.a s|»l £ § - O (S o u SK ■a£l fee* 3 ,?►"■" So S.S o .9^.2 m £ s as 3 » a .s "S.g 2^5 - rt° o S a> ■»-> p, O 02 t- 1 53 M ^ ^H _T'3 u * h .2 « o3g° l s , g ,U •d hi * •* ® Sl^2 Q^ ri ™ (1) r% «m ^a oCQ to Q p' Si 3 oS » « o a~ Mfl ,_) - M ^-. c rt » S tj in oo°| ffl A 03 *1 aP< § 0,0 3 3 tj 9 d ffl 5 •8 v S 34 Legislative Control of State Normal Schools a >j 01 ' O o S aB«.' £ o t £ S8 « 3 ft m ta to W a S CO a "SS o o K H .2 3 €8 ■E.O 3 1 2 e 03* U Q) to 6; a) a E-< to to o N lO CD | £ M H f< E 33 0 . - to *> to fa •B § o A +J o g a a o 0) 01-5 -, ft 2 ta So ■S 8 O fl) a H& <1 V ►-.a > " "" — ■ o a o OH & cd a 0) o 5 to ** C3 9 fa It gg O d 2 a a ll eg BJ as O O H Legislative Control of State Institutions 35 ■o V 3 C '■5 c o u CO z O 3 h H CO z -I < z o < o => Q UJ 111 I- < H CO u. O _1 o DC h Z o o 111 > h- < -I o III a z i o I CO III -I m < a n M H a I* 3 fr H >■ a ■° u o> £ •oo.2 M fl t< «•" «S°-Co *o b to ■_. « 2 o fl3S< ,Q CI CD S&i So *jj o . ■ oouaSod ft d 'J n m Q. a 'sa 3»ga *> to fl a ctl a> fl.fi ■a a is 5 UN J «-£a£a £>; .3 SBp.£ I I o & » 635 D g < _l CO 5 111 -J o z i o I CO III -I m < I- i CD M .2 o A « Tj ^ ■d ^ ft i 03 ed 03 d fe-S £-d o V Eh® p,nS m S bO ft rt d W w" CD m" ta c f-. t-. t-. f-H fn ti ri oi e3 rf cd B 03 o 03 03 03 V I" |>H t* >H PH ^ > h CD t*. k. >> >> --■ D o.2 a J3 .o B ^2 — . o a^ o to h u u h o ^8 a) R ^S ■8° ■d° B»- <«- 03 fl 0) O 0) fl The five e appoin e g o v e th the d consen s senate. d a> +J f- ■5 t> -3 t> IS o o ftbfl ft o o ft M ft o o ft bo ft e & ft (ID ft <3c3 .a .a cis&cis o 1 1 Qualified elect- ors and owners of real estate not more than three from the same political party. Qualified elect- ors and owners of real estate, not more than three from the is a m e political party. u CD "CD ■O ID 2 a . OSS 3 U 03 ■o 03 S . o Head of some educational in- stitution, a coun- ty supt. and one other actually en- gaged in educa- tional work. D9 1 fV» tn a o 1 in at? 0) in io E » w •-^ w Seven e Gov. ; embers 6 CD > s fa fa 03 J> fa ssa a 03 b0 03 o •2 a » State Board of Education Law changed — effective Jan. 1, 1921 Legislative Control of State Institutions 37 -o a*e o o" o (Q y Q3 m- CQgS ■s BBS O Og S r d O a ,— , ^ . a o g to o © ■c-sg I o o a En © °3 QJ . 0} i" •3 © a u ►J n ja t-i V s m .a S ° ^dd §.2 to S to S © d o © O HI ■3'S S •9 Ih ■d-fl** t» 13 u ~ 5 © a « s u'S' D ' a B H Ti d 5 a o p. « • o^ d t. ■w © 3© &« d © ■*-> S to © W © ^ JE p E* a .a © «»5 I a) 2 73 d 4-3 cd • sa* o d 5 • 2 T35 © °d . o--j d t<< © d . © Site o cd ■t^o o g M S-S© S53 ■s ta © U) d d cS a »a ^ 01 „H- d S £ ACQ .— 1=1 o t. 0, S d 2 ri'" © © u ° H gggS dOft H aj S3 °"5 fe * oja (H.S ■4J m m -u •^ +j © A ■*■» *■< "^ P S B o 3.25S o d «i § ame of Title of School id Admi: o I 4-1 ■"« - 4-t 4-1 °» "S^g °s °8 o (H -a el "O © w s *l 3 & w o v o aj j; is S ott Z 3 g CQti m*)£ pqE-i PQE- 1 38 Legislative Control of State Normal Schools a M ifei lis a 10 o « W a to rt • at a S ■aaa t, « K o £&g. t>i 5+X0 g to DO TO CQ ."> (D © 5 co S3 co © a CO u a CO O ^ CO ^ ?? 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Sod " » n o a a .a o* ■s 1 "3 rt ^ o - 2 S a .a £ tl 9 S r a S '■ a o a> < a ^ f 1 " n OOJ I t3 13 03 0> , a & Eh to £ < d S "o B aSsl i +J p- +j -*-i gig*** SS»»[|0 > CD Ji o o fl 5 CD CD CD a o i» o a a a< c- 13 A O ■s 8 . -t-> -t-» a o ■d (3 l^ "* - .0) CD CJ •d CD {■> *3 -CD •O to -o m ri +j +j --j S ■+-> w q. « -t-> S» fl es fl "a Sas m ° CD CJ bo M Q O ffl a. 2 oil gssr z +J ID «* Pi -% 3s I ri to i; CD m*2 ■sa a Eh coH mu 48 Legislative Control of State Normal Schools o to o OS » II » c« +3 ca is* w 9 ■ 9 •« S ecj O. d — V o CM CD 00 o W -M bD fs M bO PI ■3 Eh W s CD O a) cp i i CD CD CD s 3 A A •»-» 4J fl s-> i-fl"" b £• >. .a . ■° 9 ■s-l 3 ° So a •a £ fl to ^ O *o CD +j • to ■« •, * fl^flo^- i. 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CS O © 02 cfl a * a -92 fig! a^ J t, 2 -a So S a£» i« 3 3 ^0-4 o o u ■W CO 313^. o __ o *H o %4 O o § go fi -So *-> si t- cd o B N o © ^3 fl S t-l * - o ta ca H COO 02 H 02 C? > coH 50 Legislative Control of State Normal Schools ■a v 3 C '■4-» c o O CO z o I- I- CO Z -I < z o < O D 111 111 t- < (- CO _l O ee I- z o o UI > < _j CO o 111 -I a z i o I CO a 1 o CD +3 d .. ^ 03 Mrj a o 9 ~i o a ■-a d CD s h h 1* >< t-t ,- N ^-, , — . ^-, o ■^ "# * ^ ,9 ^ u u Ph c 3 3 9 9 M o o o O 9 fe fa fc fe A ® ' tn D 13 -4-J » a o 3-d .- +j o ■o 0) tn l> ■S 9-°*c M p.CQ+3 a CD 2 tHd) 5" ® S3 P. > c li. o s- 2 « 2 ^5 CQ H3J 1 1 f- a t* lti& 5 ►. i M o o ■ PI to "3 3 d-d -4-< "«3 CD > ib S3 ag to K S •9 0) 3 S3 '3 CD sis 3 "S T o cd tn 9 CS a d to CO •O (3 a o p 9 -1" o£9 « to •9 ai O +J PI o V -a A 1 " m "O O W »9o.2 M (D +J O T3 fl i> O flJ= «M o s d to d o +3 CO CD 3 9 '«< GO K) CM O -d M d o ■g §9 W.S to > o ■0 u ca o t3 M ge si > O ©.fc n£ra m D2H n coH Legislative Control of State Institutions 51 •a v 3 C '■P C o O Z o £ H co z _1 < z o I- < o z> a tu in i- < H to u. o -I o a. 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O 0) 1 1 as t-a ^ M -1 o t£ H Z O o © 6 03 a 2 ^ 4-1 to g a "".a a) o ra a a.£ © a £ a «• £ * *3 rf a a "3 "3 P'T, JL d n ^ ™ 3 § § 18 u "> > 1- < -J w 5 u _i a z i o X CO ■ o a a •T - CO CJ fl "•h d •-* o.S - £»a'S "■Sis a a ». © HI _ 13 ^ *- O §i 8 S o a ta» u 3 a> a, » id *£ g ■ «g o+-> o m Mm a «■§ a to 2 03 t— i iS S 18 ai goo. d S.2 to S a a ~h m a S a; a o t. o •sss s s »S to » ° ™ O 'to d fo fl S 2 "S S 1. o © © CD > [^ 3 a o o o es S Ul -1 CO < i +f © « tH . iJfl P CO ssri ~,3 o 3 if si si « Hg ^S Z Br 6 3 'S fe s > a m§ S © » g © Q J? ^ifl^ ee5 (> co-2co toB o •a s o o © h 31 mo Legislative Control of State Institutions 53 ■o o> 3 C '■w C o O I w z o D H H CO z -1 < z O h < o z> a ui h < h co u. o -I o a. h z o o Ul > < -I to O ui _i o z £ o z CO >» 1 i o d a o & o o -2 » ft p. © — • ft is ^ ft ft a to w to 00 J- >* u *■• ^-v ,_^ ^^ o tH irt CM CO £ Fh V w DO a 3 CD | ►J V £| jsPja a h CO •a a 4) a o .2 a o = s^a o 5 si CD-d,-, cS 2 _ O m & °l£«Ts or co 9 o & si 1 d o 1 J. ' • a> -a cj o CO t-t « 1 1 3 PI & o 3 t- a B » d.5 » ®'3 ** * 8 S a « s» 3S^'§ 1 m l +-> '■ t>CQ a> O J) d 55 S CD 9 H 3| r i 1 « i 4) ■ 8 o a os ati ka a 03 O R O ffl+J"« a o o ?„»¥« ©h+J u "3 SJ9353 fl g J) ^ ca o 5 § a ■H « •a o ad «'3 IS oj a a a •d . in oj a) 3a U» ■S3 •8 5 tj HI — H + J CD — " CD _. O .3 rt aij 72 cd « Co ■3 °3S 2^H CO CD ft to "SB u So to a««"oS£ag "3a- S ~§S 2 M _> d iri H m ^•2 fi 9 S 3-3 o ■*-> O -u — rt ft cj to ■ tn 03 itate let cial stra es 4-1 O SSI'S ■C 3 g S"S§ O d C3 Pi o Ph o s a 3 ! Pra S 54 Legislative Control of State Normal Schools •a v 3 C o O co z o p => H 1- _l < Z o h < o 3 Q 111 111 H < h- <0 U. o o < -I CO 5 in _i o z o I CO 111 _l CO < ■S.2 s^ „ O-rJ O B ■„-< cj .h ®+j -y S o t. Legislative Control of State Institutions 55 Section B Graphs Analyzing the Data In Section B will be found a series of graphs made by analyz- ing the data in Section A, showing the source of authority, how each board is provided, the relationship which these boards sustain to each other, and the relationship which the state super- intendent and governor sustain to each board. A continuous line in the graphs indicates at its beginning the source of authority and at its end its creation through election or appointment. A broken line shows at the be- ginning its source of authority, and at its end its cre- ation, but in each case the source of authority retains an ex-officio relationship to the board created. In some cases he is ex-officio president, in some he is secretary, and in others he is a member. A dotted line indicates ex-officio relationship only; it may be that of pres- ident, secretary, or member. Thus, in Alabama the people elect the governor and the state superintendent. The governor ap- points the state board of control. He also appoints four other boards and retains an ex-officio membership in each. The state council of education is made up entirely of ex-officio members. The state superintendent is an ex-officio member of the state council of education, and of the state normal school board. In comparing the different graphs the different state attitudes to- wards educational control will readily be noted. A striking contrast may be seen in the unit vs. the multiple type of control by comparing Vermont and Mississippi. 56 Legislative Control of State Normal Schools ALABAMA Ha*eS'vf>i. '~if~-\ '[Sir ARIZONA IS] reopte. *l}34.' ! cJ. -. J ^- \ Loaac J - r^ii Si.~Bd.Ex** mm Legislative Control of State Institutions ARKANSAS 57 ~P&° j>le tfoX&il CALIFORNIA Temple \ 58 Legislative Control of State Normal Schools COLORADO pcofcle St 3ty# StBd.Ed. \siM *\ Trustees- CONNECTICUT Pa of> U Gr oK St die Boar J £t/ua. S e.eY Legislative Control of State Institutions GEORGIA 59 ~peof>t-e. stSufii, StlSJ.Fd Sf£ Ko>tf \Cfldmtlh-% IDAHO Peo/ /e s+*te SuJ,t. \&J.£l/.\ \£f**"'4 60 Legislative Control of State Normal Schools ILLINOIS S* S*#>*. Board Truiktt TeofU formal Scitk 5rf»f.| INDIANA St. Sufit Veof> /g (ED- (form* l) (53 Legislative Control of State Institutions IOWA 61 StJtn 5<*>«/ Vac Edoc. Bd. Ekath, r •X. >•"■. |p»«W | |W«ii/.| |ft* t TCl KANSAS <3tfe/e Sle S/.JB'J..&ift*i -o «■ €->--y7« V BodrV Adrnr. 62 Legislative Control of State Normal Schools KENTUCKY s*si//tf V \ /faritiicty Se<^.le ~~[ (JoK i. /IHf.GrenL Pee file "iU-tt&'+rd £lfvC. St-4ieB°dr/£a« £Xe e u -tire 0'4n/ Cbe.afcU ] \Q*r. S£4.*ti3eer el EJuQ, \C*rn:Ed\ 68 Legislative Control of State Normal Schools NEW JERSEY Peefi/e Co-rn. Bduc S-t.BiJ. Ed v. St.-Bd.ef. NEW MEXICO Bosr4 \TtsiHrs Legislative Control of State Institutions NEW YORK 69 Pe.//e tAej-fsijtt, 7fe.g"erffs Lam-JJlf. ( /form s (si 7" rr j~t> t utittic NORTH CAROLINA 70 Legislative Control of State Normal Schools NORTH DAKOTA Pe-c/o/t S* Sufi* £W Agt S+dieBr OHIO j PeoJb/e 1 »f.Dff- *-OiC. fivJ/lwr^oM; f*fr«*Sj (i*IHw"tj (M>rr-aA \n*i.u-\ SilTec.'Bca^ 5+ 9 oft. OREGON sfBJ.FJ*. | st. bJ. e<. | 72 Legislative Control of State Normal Schools PENNSYLVANIA (/VOTT^«.(tJ RHODE ISLAND Si^eBd.^Ju^ PeasJ A Ij.J.StCot/. ■-- v* • Legislative Control of State Institutions SOUTH CAROLINA 73 pe.ef>te (/ra-rr**tQ 13 ** W Trvt^ret ^X.^HZ.'i.i AST SOUTH DAKOTA Sf- S «/* people 74 Legislative Control of State Normal Schools TENNESSEE S-{.Bd,£dvc. A \ / \St24*.\ \ Vcofli St&f. E**"- St7e K 1-Bk.0n^.\ | eufnrfBmJj TEXAS isioife Su/t. Poo ^/e Si-BJ.tr* Legislative Control of State Institutions VERMONT Pe^/e ■ a re.-r/10-r Si cS *? Ba «9 rd B du c Co 777. jS^C. | VIRGINIA 75 Peafi/e Si**? BdErt fi./ITorTy,4( ~Bent \st.BA ex. 76 Legislative Control of State Normal Schools WASHINGTON ' IfWK I > "••■ |ft«.C.| WEST VIRGINIA Sl.Svtf & or*, rnor ^^ / « H. * / \S£*te ff~»/ &»*\ Legislative Control of State Institutions WISCONSIN 77 S~i- Sufit __3L 2/yr/rersfi'y St***B> a '1 B. O OJ § o o 03 i & (a E 1 1 o o rS s o o ■s o ft P O o o ■3 CO -a o a (3 CQ V b CJ s ED a o "5 a 1 o p a a o O o oj 0. a. a at '3 > O ■a ri O "S 'o P. a o CQ .H -a 3 in "o a i o u a o -a < 3 a s. X 9 ■3 o V PS | V 3 a 1 I oS 3 o o -Q "S 0J s .a o S 3 en § .2 8 *9 a a el c I 1 1 a n s 0J a 1 a o s a o 1 § -a 1 -a o 1 o § ! o .1 9 2 '3 s P5 Alabama 1 l l 1 1 — 1 1 ----- 1 - — 1 l ..... 1 1 1 — l l l l 1 1 1 - — l .... 1 1 -- 1 i l 1 ..... 1 Colorado 1 1 ----- 1 1 1 1 Idaho I T i i i i T l 1 1 1 l .... -- 1 l -— l 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 .... 1 1 1 .... ----- ..... .... ..... — - ----- Kansas .... ..... 1 — 1 ...... l .... — — 1 1 1 1 ..... ...._ — 1 ... l l l 1 .... i i l ..... 1 1 — l 1 1 1 1 1 1 1 1 — l ..... ----- ..... l --- .... .... 1 ..... ..... .... 1 :z .... -_ l ..... ..... 1 i i i i i i i i l i i T l l l i l -— — .... 1 --- — l 1 ..... ..... 1 1 ..... ..... ;:::: .... 1 — — .... Ohio _. ._. ... ... l 1 -— ..... 1 1 ..... ..... ..... 1 1 1 1 1 1 1 1 1 1 1 1 1 l 1 ... Pennsylvania . .._ — 1 ..... 1 1 l i 1 1 ..... ----- 1 1 1 1 Texas — - ..... .... L. . 1 ..... — -- 1 1 1 ..... .... — i 1 1 1 1 .... ----- 1 1 l l i 1 j 1 1 1 ..... Totals _ 1 l 4 2 34 33 31 4 17 1 5 10 3 4 6 9 20 24 i 4 3 3 7 3 1 7 1 1 92 Legislative Control of State Normal Schools that the first group of duties should receive much more attention by the board and the others considerably less. This important principle is not recognized even in the latest enactments relating to the state educational boards. In February, 1919, one of the states consolidated some of its boards by the following provi- sions : " board shall have general control and manage- ment of (names of all the state educational institutions) .... shall exercise such authority and perform such duties as may have been delegated heretofore to the state board of regents, to the state board of education as now constituted, to the state school book commission, and to the state vocational board." 8 By way of explanation it should be said that in this particular state the state board of education has performed numerous de- tailed duties relating to the certification of teachers; it is un- necessary to state that a state text-book commission has details to perform. Now, if these numerous duties fall to the state board of education in addition to others, and the board consid- ers it its duty to perform them rather than to employ experts, it is not surprising that it finds little time for large constructive educational policies. Types of Boards Local vs. State Boards. The history of the different prevailing types of boards follows in the main the general develop- ment of educational administration. At first the control was well centralized, as in West Virginia and Missouri; later it became extremely local, and now it is slowly swinging back towards a highly centralized type. The local boards now in existence vary from those whose duties are merely nominal to those with complete control of all educational and financial matters. The main advantage claimed for the local type of control is that its members, by assuming the responsibil- ity for the institution, become more interested in its prog- ress and transmit this interest to their fellow-citizens; thus the entire community becomes a unit in the support of the local in- stitution. The second advantage urged is that the board from its community point of view may sense needs which the presi- 'Code of West Vwgima, Chap. 45, See. 7. Significance of Different Types of Boards 93 dent or a state board cannot know. Against the latter conten- tion it may be said that the community's view is narrow and usually this narrow view handicaps rather than promotes real efficiency. When the state normal schools of West Virginia were under the control of local boards the entire faculty of one school was dismissed because of local pressure. This was proved when the state board which then had the power to re- view the action of the local board simply transferred the facult.v to another institution and sent that institution's faculty to thu former one. Even if the advantage of greater interest does not radiate from the president and his faculty, it can be secured through a local committee made up of representative citizens — men and women — who are merely advisory to a state board. The chief disadvantage of a local board for the control of any teacher training agency is that the board, in composition, lacks vision; hence, all questions are almost certain to be considered from the sectional point of view. It is possible, too, that the pur- pose of the school, as has often happened, will be subordinated to mere enrollment, which, in turn will secure a larger appro- priation from the state and larger financial benefit to the local community; thus a large material plant is built up, perhaps at the expense of some other institution the function of which is identical and the needs of which are greater. Second, the local board may coincide with the president and work in harmony with his plans or may work contrary to his policies whether they be right or wrong ; at any rate, such a board cannot inspire the president to do Mb best construe live work for the school. Third, rivalry, with all its attendant evils too well known to consume time here, is sure to be present where the local type of control prevails. The advantages of a state board of education inhere in the fact that the members may be drawn from the different parts of the state and thereby bring a wider experience than is likely to be found in any local board. Second, in approving courses of study, appointing presidents and faculties, and determining their tenure, local bias will be eliminated ; this fact alone means much to the efficiency of any educational institution. Third, a state board of education will cooperate more readily with other state 94 Legislative Control of State Normal Schools boards in working out state-wide programs. This cooperation is especially necessary in the training of teachers. These advan- tages, together with the inherent disadvantages of a local board, indicate rather clearly that some form of state board is best for normal schools. Multiple vs. Unit Boards. A summary of the data found in Chapter I, Section C, reveals the fact that out of forty-four states only nine have unit boards for the management and control of all state institutions ; twelve have unit boards for all state teacher training institutions, while thirty-two have such boards for state normal schools. Since the training of teachers for a state is a "homogeneous undertaking," 9 or at least should be, it seems reasonable that one board should control and unify this state-wide function. "Where multiple boards exist for the control of different institutions with like functions the same disadvantages inhere as in the local boards, except in a some- what less acute form. Bach desires to obtain an appropriation which will make a creditable showing for its particular institu- tion, and expenditures are often made regardless of the function of the institution in the system as a whole. The rivalry among multiple boards controlling institutions, the functions of which are alike, may be equal to the rivalry among local boards. It reminds one of children who want the same toy at the same time, or the same slice of cake when there are others just as large and as good. Departments of education within universi- ties have prospered in training secondary teachers; normal schools oftentimes have tried to build up their attendance by imitating the departments, regardless of their immediate op- portunity to serve the state well in the training of elementary teachers. As a result there has been an uneconomical expendi- ture of money and time. It is not urged here that the field of the normal school be limited or that a monopoly be given to the university in the training of secondary teachers, but rather that there should be a central authority to assist in defining and •Bulletin No. 14, The Carnegie Foundation for the Advancement of Teaching, p. 63. Significance of Different Types of Boards 95 adjusting the aims of the different teacher training in- stitutions. In addition to the aims and programs there are certain details, such as determining entrance requirements, grad- uation requirements, exchange of credits, credit for extension work, latitude to the mature student, and variation in the cur- riculum to suit local needs, which only a unit board can manage intelligently. Out of these considerations it seems reasonable to contend that all state teacher training agencies should be placed under one board. This obviously leads to the conclusion that all state institutions, particularly those which have anything at all to do with education, should be placed under this same unit board. It is beyond the limits of this monograph to present data or further argument to substantiate this position. Concerning the teacher training high schools let it suffice to say that the state should, as it is doing in many places, exercise strong supervi- sory control as long as the present teacher shortage makes the existence of such training necessary. Coffman says: "The system was established in the first place because the central ed- ucational machinery and the state normal schools were not meet- ing rural needs, and it has grown because it does supply an immediate need in an immediate way. At the time when it be- came an institution the people of the state were not used to acting in unison on such questions; without doubt, were the problem to be solved anew with the educational machinery now organized in the state, another solution more efficient and more economical would be found." 10 Other Types of Multiple Boards. Further Disadvantages. Multiple boards may be further classified as local-multiple boards such as now exist in Arizona, California, Georgia, Mis- souri, New Mexico ; or as state dual boards such as are found in West Virginia and other states having two boards with different functions in control of the same institution. The latter type will be discussed here, since it involves a form of multiple con- trol now receiving attention and likely to become prevalent because of its possibilities for scientific management. In West Virginia this dual-multiple control is felt within the '"Coffman, L. D., Teacher Training Departments, Minnesota High Schools, p. 79. 96 Legislative Control of State Normal Schools state educational institutions. According to the new code of 1919 the State Board of Education consists "of seven members, one of whom shall be the state superintendent of schools ex- offlcio, and the other six members shall be appointed by the governor, as herein provided from the two dominant political parties .... shall have the general control and management of the educational affairs of the West Virginia University, the state normal schools, the West Virginia Trades School, the West Virginia Vocational School .... and of any other state edu- cational institution which may hereafter be created by law." 11 "The state board of control .... shall consist of three mem- bers, not more than two of whom at the time of appointment shall belong to the same political party, to be appointed by the governor and with the advice of the state senate . . . shall have charge and control of the financial and business affairs of the West Virginia University .... the state normal school and its branches .... and have such other control and management of said institutions as are in this act provided. ' ' 12 These statutory provisions create a peculiar relationship be- tween the two boards in the management and control of the same institutions. The State Board of Education may employ presi- dents or teachers in any institution, but the salaries cannot be paid unless approved by the State Board of Control. The for- mer may employ a teacher of agriculture or home economics, but the latter may say that there are no funds for equipping the laboratories. Expensive apparatus, including scientific books, and even magazines may be needed for a certain institu- tion, but funds may be lacking according to the interpretation of the needs of the institution by the State Board of Control. In other words, efficiency and economy, in the eyes of one board, may mean a little greater expenditure of funds, while in the eyes of the other it must always mean less expenditure of the available funds. According to this dual type of control it is possible for these two extreme ideas to be found in each board. Legally, then, the State Board of Education becomes little more than a sub-committee of the State Board of Control. In actual practice, however, it must be said that they have worked har- u West VwgvnAa Code, Chap. 45, Sec. 4. "Hid., Chap. 15, See. 1. Significance of Different Types of Boards 97 moniously in the state since their creation in 1909. The Board of Control in its biennial report of 1912 says, "We are glad to state that this Board [the Board of Regents, now Board of Edu- cation] has given us generous cooperation in our work for the educational institutions, and the relations at all times between the two Boards have been harmonious and helpful." 13 It is generally acknowledged that harmony has been brought about, not by any virtue inherent in the type of control, but because the members of both boards have been broad, liberal-minded men, and, as has been said of the system, it has worked because those identified with it have determined to make it work. This dual-multiple type control is a most unfortunate one, the evils of which future legislation cannot afford to overlook. It may be that these two boards will work in harmony in this state for years, but the future development of state institutions is a mat- ter of too great importance to leave such to chance. This dan- ger must be present wherever there are two parallel boards whose powers and duties overlap, or more especially where one has control of the financial affairs and the other of the educa- tional. Wherever anything savoring of so-called scientific management is introduced it should be safeguarded so that the financial interests do not obscure the educational. The solution is self-evident ; namely, there should be one board with the general oversight of the powers and duties now lodged in the two boards. The details should then be placed in the hands of ex- perts, and there should be one state board for all educational in- stitutions. The principle advocated here is referred to in the report of the survey of the Binghamton school system which says : ' ' The board of education has no control over budget esti- mates or disbursement of funds. The lack of financial control has often meant also lack of power to fix educational policies. ' ' 14 The disadvantages naturally inherent in the various types of multiple boards and in local boards can be overcome only by a unit board for at least all institutions which have to do with the unified problem of training teachers. This unit board should have the full management and control of the normal schools, the "Biennial Report, 1912, West Virginia State Board of Control. "A Beport of the Survey of the Binghamton School System, p. 36. 98 Legislative Control of State Normal Schools schools of education in state colleges and universities, and in- cidentally we suggest the supervision of all such work in the private and denominational colleges, the city training schools, and the high schools. The chief reasons for the unit board may be summarized by saying that the problem of training teachers for the state is a unit problem ; the present division of the prob- lem among different institutions differently controlled is his- toric and not at all inherent in the nature of teacher training itself. This essential integration can be maintained only by a single board whose vision is state-wide and whose purpose in this respect is single, namely, to supply the state with an ade- quate supply of trained teachers. The disadvantages of such a type of control should be clear : First, the specific work of each institution would be outlined with reference to the one great problem. Each school would then feel that its assigned work was important, that it was rendering a great service to the state and that undesirable competition with other similar schools was unnecessary nor necessary to main- tain courses in fields where there was not sufficient demand for the returns to justify the expenditure. The board would as- sume responsibility for the results of each school in comparison with the other schools. Second, entrance credits, graduation requirements, flexibility for mature students, extension credit and courses, can be adopt- ed by the board through its experts. Third, local interests in all phases would become subordinated to the real purpose of the school. Local pride would find expres- sion in a desire to furnish the greatest possible number of trained teachers to the state rather than to attract many students to the local town in order that local merchants, boarding-house keepers, and owners of rooms may increase their incomes.. Fourth, the unit board would give an opportunity to employ expert service in all phases of its work. It can employ an expert business manager and equip his office. It can employ the chief executive of the institution and give him sufficient office help, so that he may contribute his services to the instructional side of the school. Under the multiple or more especially the Significance of Different Types of Boards 99 dual type of control for the same institution the chief execu- tive is between two fires. Fifth, the unit board would assume the responsibility of all ap- propriations and distribute the same among the various institu- tions under its control according to their several purposes and needs. Just here a plausible argument can be found for extend- ing this type of control to all state institutions. Log-rolling in legislatures, which leads to all forms of bad ethics and uneco- nomical effort, would be stopped. Sixth, the plan would give an opportunity for the classifica- tion and explanation of receipts and expenditures. In the Ap- pendix of this study will be found some of the advantages of such a classification. Seventh, the presence of ex-officio members on many boards indicates that there is a recognized need for unity of control. This need is further exemplified in the Joint Board of Higher Curricula of the state of Washington, in the Council of Educa- tion of Alabama, and in other similar boards. The functions of the former ' ' are threefold : 1. To consider matters of efficiency and economy in the administration of the five institutions of higher learning supported by the state, and to make recom- mendations to their controlling boards. 2. To approve or dis- approve of the introduction of new major professional or ap- plied science lines in the various institutions. 3. To survey the several institutions, investigating the enrollment, attend- ance and cost of instruction, and to report biennially to the gov- ernor. ' '" The Alabama Council of Education was created at the sug- gestion of the survey commission which said it "should be or- ganized as a clearing-house board to have charge of and settle all educational matters of common interests to the schools di- rected by the State Board of Education, and to the schools un- der the three boards of the higher educational institutions." 16 This board is composed of the governor, the state superintendent of schools, two members of the state board of education, the "First Biennial Eeport of the Joint Board of Higher Curricula, p. 6. "An Educational Study of Alabama, U. S. Bureau of Education, Bull. No. 41, p. 63. 100 Legislative Control of State Normal Schools presidents of each of the three institutions, and a member of each of the three hoards of trustee. In it the desire for cen- tralized control can readily be seen. Eighth, practically all recent legislation favors some form of more centralized control than was found in the legislation it displaced. The Alabama State Board of Education, created in 1919, displaced five boards of trustees, a state board for voca- tional education, the state high school commission, state text book commission, and the illiteracy commission. 16 New Mex- ico's new law, effective 1921, created a board to "manage and control all state educational, charitable, penal or reformatory institutions. ' ' 17 It likewise displaces four boards of regents and a state board of education. Wisconsin, recognizing the principle of unity in its educa- tional system, has established a state board of education whose duties are "to present to the legislature budget estimates which will represent a state view of the educational problem and not merely a local view To secure the best available infor- mation to serve as a basis for an educational policy which will offer the widest possible educational opportunity to the people of the state for the funds expended To make unneces- sary and to prevent an unseemly scramble for legislative funds, and lobbying in the interest of special legislation for particular schools or parts of the educational system To keep edu- cational institutions from unduly expanding their functions, prevent duplication of work adequately provided for in other in- stitutions, and promote harmony in the educational system and single-minded devotion to the entire educational interests of the state." 18 To this end several propositions defining the duties of the several state officers, commissions and boards for the cooperation and execution of the state's work have been adopted. Ninth, many authoritative opinions favorable to the unit board may be cited. The most significant is found in The Pro- fessional Preparation of Teachers for American Public Schools : "Whatever steps may be taken in Missouri or elsewhere in the name of progress in educational organization, it is safe to say "New Mexico Statutes, 1919. "Wisconsin's Educational Borison, Vol. I, pp. 4-5. Significance of Different Types of Boards 101 that they will represent in some form the present inevitable tendency toward simplification, by centralizing power and re- sponsibility in the hands of a few individuals — and those fitted to use it." 19 The survey further states: "The foregoing sec- tion was devoted to a plan whereby these schools (normal schools) should be given their natural place in the university organiza- tion, with their executives in charge of the whole problem of the preparation and supply of teachers for the state. Informed opinion will likewise agree that it is a serious weakness to have a state superintendent elected by the people as a partisan, and that he should be replaced by a skilled officer, chosen solely for his ability, on a tenure of good behavior, and responsible to a group of intelligent laymen. The absolute need for concerted action between these two authorities — the one responsible for training in state institutions, the other for administration at large — suggests at once the advisabililty of placing both func- tions under one board of representative citizens." 20 Tenth, a unit board would be more economical. At present this must remain in an assertive form because of lack of comparative data of the multiple and the unit types. An ex-governor recently said: "Our present system of controlling state institutions, even though we still have a dual type and pay each of the three members of the state board of control $5,000 per year, each of four members of the state board of edu- cation $1,000 per year, is undoubtedly less expensive than our old multiple type of control." If this is in any measure true where the boards are highly salaried officials, it should cer- tainly be true where such boards serve, according to a well established American principle in education, for expenses or for a small per diem and expenses. Detailed Provisions for a Unit Board The question, "What is the best type of board a state can provide by legislative enactment for the control of its teacher training agencies, having been answered in favor of a "Bulletin No. 14, The Carnegie Foundation for the Advancement of Teaching, p. 274. x im., p. 65. 102 Legislative Control of State Normal Schools state-unit board we shall now proceed with the detail of such a board. This topic calls for an examination of the methods of choosing members, the length of the term for which each mem- ber is chosen, qualifications for membership, the number of members on the board, ex-offlcio membership, and the compen- sation. Methods of Choosing Board Members. Eeference to the data will show that of the seventy-seven different boards repre- sented in the study governing state normal schools fifty-eight, or seventy-five per cent, are appointed by the governors of the different states. Over twenty-three per cent are ap- pointed by the legislatures, the state board of education or some other authority, while about two per cent are elected by the people. The question concerns itself with how to secure the most efficient persons for this particular position. If we should attempt to draw our standard from city school administration we would find opinion divided, leaning somewhat toward the election plan. Strayer and Engelhardt say: "The principles which govern in the case of the county board of edu- cation, or of the city school board are identical* .... A board of education elected at large, consisting of from five to nine members, whose terms of office equal in length the number of members of the board, serving without pay, has been found most acceptable in most American cities." 21 Cubberley says: "A plan tried in some of our cities, but one less in favor now than some years ago, is that of having the mayor of the city appoint the board members instead of their being elected. This plan is especially favored in large cities. In small cities there is no question but that election at large by popular vote is the more desirable method, and even for large cities experience seems to indicate that the results are about equally satisfactory." 22 In a footnote following the above quotation we find: "Election by the people and at large has certainly given better re- sults in Boston, St. Louis, and Portland, Oregon, than has been the case under appointment by the mayor in New York, Chicago or San Francisco." 23 ""Strayer and Engelhardt, The Class Boom Teacher, p. 37. ^Cubberley, E. P., PubUc School Administration, p. 96. "Hid., p. 461. "Ibid. Significance of Different Types of Boards 103 However, the same author in speaking of the application of city school administration to state educational organization says that for general control, "There should be a state board for educa- tional control, consisting of a small number of representative citi- zens of the state, to be appointed by the governor and for rela- tively long terms. A board of five or seven members, with the term of one expiring each- year, represents in many respects a desirable form of organization." 24 The Alabama survey com- mission says: "The consensus of opinion both within the state and throughout the country is strongly in favor of the governor appointed board. ' ' 25 The objections to electing a state board of education are prac- tically the same as those frequently urged against electing the state superintendent in that way, namely, that the true issues involved in the election are so clouded by the so-called larger political questions that the slate, following the name of governor, goes through regardless of the qualifications of its can- didates. In other words, educational ideals and policies are en- tirely obscured in the political muddle. This disadvantage might be overcome by having a separate election. It is ques- tionable whether the extra expense would be justified by the re- sults obtained. Perhaps the appointive power of the governor can be so regulated that equally good results will be secured. In reply to the argument that extreme centralization of power takes away the just rights of the people, it may be said that the real citizens in a true democracy are more concerned with having equal educational advantages and opportunities for their chil- dren than expressing their opinion on matters upon which they are uniformed, and, upon which, during times of great political agitation, it is impossible to secure information. For these reasons it may be well to adhere to the standard now set by the seventy-five per cent in the matter of securing efficient boards for the management and control of our state teacher training schools. Length of Term. A summary of the results in Table 4 shows that the length of term for normal school board members varies from two years to twelve, with an average of s An Educational Study of Alabama, U. S. Bureau of Education Bull. No. 41, 1919, p. 432. 104 Legislative Control of State Normal Schools 5.3 years, the exception to this being Arizona and New York where members may be appointed for life or during sat- isfactory service. It is difficult to set as a standard an exact num- ber of years for membership on a teacher training board. It would be difficult to prove that membership should be for twelve years rather than nine. However, in choosing between nine years and four there should be no difficulty. It is agreed by all authorities that the length of term should be relatively long, at least longer than that of the appointive power. The following reasons for this seem valid: If the appointive power, the gov- ernor, say, should be tempted to appoint at the beginning of his term a political follower for political purposes, and the length of the term of the member appointed be longer than that of the governor, such appointment might act as a boomerang and defeat the ulterior purpose of the governor. In this connection it should be said that the terms should be so arranged that no one governor shall appoint many new members. Further, wor- thy state-wide teacher training programs demand a series of years for accomplishment. If the board is changing rapidly within the time required it is certain that the original program will never be carried through. It is true that institutions and institutional life should be modified with the changes in society, yet there must be maintained a thread of stability if society is to perpetuate itself; only board members who serve many years can maintain the stability of institutional life. Many citi- zens standing on the outside of an institution think that it should be rapidly reformed. They may be right, but a sane de- cision demands careful and continuous study in close contact, and this requires a greater length of time than two or three or probably four years. Qualifications for Membership. As will be seen from the data there is no uniform procedure among the states on the specifications of qualifications. In some of the provisions none are specified. In some there is a geographical distribution, such as a limited number from the same county or one from each congressional district. A few prohibit membership by the appointees of the board, thus excluding all connected with Significance of Different Types of Boards 105 the state institutions for which the board exists; others limit membership to schoolmen. A number mention polit- ical party affiliation. The fallacy inherent in some of the specifications is evident. The mention of the congres- sional district, or any other geographical distribution, is probably of political origin. To tell an intelligent governor who has the appointive power, or citizens who east the bal- lot, that the eligible candidate for board membership must have "character and fitness," is a waste of printer's ink. An ex-governor, whom the writer consulted, who has made a study of boards of control for educational institutions, said that it might be of some assistance and a protection to the governor in making the appointments if the law specified at least a bi-partisan board. If the details are handled by a sufficient number of experts, as will be recommended later in this study, it might be well, in order to prevent an inbreeding of ideas, to exclude the educational appointees of the board, since their recommendations will at all times be before the board in its deliberations. Number of Members. In this investigation it has been found that normal school boards range in number from two to twelve, excluding the ex-officio members; the median is six. The number who hold ex-officio relationship to such boards ranges from one to three ; since twenty-five of these boards have one ex-officio member, it may be said that the typical normal school has a membership of seven. Of the many studies now available concerning the work of committees and their relation- ship to their boards, most of them lead to the conclusion that committee service is time consuming in its usual form and that it is overworked as an educational policy. This point is made clear by Cubberley in Public School Administration (page 112). Theisen, in his recent study, finds a positive correlation of plus .56 between the number of committees and the size of the board for city schools. All who have had to do with boards of any kind know that a small board of from three to five members is far more effective in handling any kind of business than a board composed of larger membership. 106 Legislative Control of State Normal Schools Ex-Officio Membership. As a principle of city school administration ex-officio membership would not be tolerated. It may be surprising to find that forty-three normal school boards have from one to three representatives who are there be- cause of other relationship to the school or the political system. By reference to the graphs, Section II, Chapter I, of this study, it will be seen that the most frequent ex-officio member is the state superintendent ; the next is the governor. It is difficult to understand why the governor should retain a place on such board except as a matter of custom. In a decentralized system of control for all state educational institutions it can readily be seen that the state superintendent has been considered the logi- cal connecting link. His exclusive control over the public school system and the intimate relationship which the normal school bears to it again make it seem reasonable that the superintendent should occupy a place on the board of control. Exact data would be difficult to obtain concerning the effect of the superintendent as ex-officio member on the normal school board. This study does not offer such data. However, our contention is that the unit plan for governing state teacher training institutions will make this condition unnecessary in states where the superin- tendent can be appointed by the unit board. In others, it may be wise to retain the superintendent in some such relationship, until a constitutional amendment gives the board the authority to make the appointment. Compensation of Members. Our data show that the "un- paid board" is typical in nearly all states. This conforms to the opinions of the best educational authority on the subject. A few states have salaried boards for the control of normal schools and other state institutions, but the experiment is too new to furnish any evidence that such a procedure is nec- essary in American education. After providing a board for the control of teacher training agencies of this type, including the details suggested by the preceding discussion, namely, a state-unit board composed of from three to five members appointed by the governor, or elected at a separate election, with terms of service at least longer Significance of Different Types of Boards 107 than that of the governor, and serving without compensation, it is then well to ask the question: Is efficient control of the institution insured? An affirmative answer can be given only in so far as this board has a clear conception of its duties, looks carefully to its own organization, and provides the administra- tive machinery which will inspire and make economical use of the personnel of the institution or institutions which it controls. Anyone at all familiar with the work of a board of control and with the institution or institutions knows the numerous details necessarily involved in the successful operation of both. Since, according to the principles already advocated by this study, the board can neither as a whole nor through committee action afford to do the actual details involved in its own office, the alternative is that it must employ experts for the details in order that it may use its own time judiciously. At least two experts will be needed — one will be an edu- cational expert — in addition to the state superintendent, the other will be the financial or business expert with an adequate office force. Others may be needed, and still others may be called for special services, such as educational surveys, special problems, and the location of professional schools. Reasons for the employment of these experts will be indicated later in the study. Relationship of the Board to the School. The provisions made by the board for the organization and administration of the school deserve careful attention. The relationship between the board and the institution should be one of mutual understanding, sympathy, and helpfulness. When there are misunderstandings and cross purposes both fail to function properly. This relationship can best be seen by grouping the work of the institution under two groups of activities. The first group, which may properly be called major activities, concerns the technical process of classroom instruction and the personal relationship of faculty and student body. With this group the board seldom concerns itself. The second group of activities, since it exists primarily for the first, may be called a minor one, yet it is extremely essential, and oftentimes its management 108 Legislative Control of State Normal Schools conditions to a great extent the efficiency of the entire institu- tion. It might be termed the business side of the school, and is concerned with publishing reports, supervising and planning grounds, ordering supplies, and paying bills. These functions must be discharged by someone, and unfortunately they often- times are assumed willingly by the president of the normal school. The Board's Concept of the President's Duties. When the board fails to furnish sufficient office force, the president be- comes a mere office automaton, ordering supplies, signing checks, and paying bills. This is especially true if there is a financial board or committee which does not see the real aim of the institution nor recognize the function of a president. What teacher or visitor has not had difficulty in obtaining a confer- ence with the president because he has been busy with the above named duties? The following quotation will illustrate the true situation with respect to the president's view of his own functions: I realize that the president must be responsible for the property of the state, for the purchase of supplies, to some extent for the equipment, etc. I know the importance of routine, but nevertheless there should someone in the school able to give time, strength and consideration to the higher problems of the school. You do not know how much office work there is connected with normal schools. It is work that must be done by someone. I expect the larger portion of the president's time is now taken up with office work. 28 In answer to the question concerning professional assistance received by instructors from the president, the Wisconsin re- port states: "One hundred seventy-eight conferences with in- structors brought out the fact that the president had never visited any classes in 49 cases. In replies to the questionnaire 51 reported visits ; 37 reported no visits. In two schools it was apparent that the presidents had exercised a strong influence on classroom work. In others there was little evidence of con- structive supervision. This is due largely to the fact that the presidents are so occupied with administrative details and prob- lems that their professional duties have been neglected. The appointment of a business manager in the general office of the board should help correct this condition. Further steps should ^Wisconsin Survey of Normal Schools, pp. 86-87. Significance of Different Types of Boards 109 be taken to relieve the presidents of routine clerical work so that they may devote themselves to the professional supervision of their schools. ' ' 27 Since this study is concerned primarily with the best type of board for a state normal school, and with the provisions made by the board for the business details of the institutions it was decided to select a well-known activity of the president and find out what the board expects of him relative to this activity. The one selected was the method of ordering supplies and pay- ing bills. Since the latter follows closely the former, i.e., when the president is closely identified with the process of ordering supplies he is also expected to see that the details of payment are looked after, only the data on ordering are presented. This is summarized in Table 10. During the school year 1915-16 data on ordering supplies and paying bills in the various normal schools in the United States were collected by a personal letter to the presidents of the schools. It was found that in thirty-five states out of the forty-four it was customary to place practically the entire responsibility on the president. Similar data collected in the same manner in the spring of 1920 show that twenty-five states make some kind of provision for shifting the responsi- bility. Table 10 shows that five states have financial boards; seven have purchasing agents; ten provide for the secretary, finance committee, or the business agent to take part or all the responsibility; in eight states there is mention of the president's secretary, or the heads of departments participating in ordering supplies ; in thirty-one the president seems to be still tied closely to this activity; even in the other plans which have been in- augurated he makes the small purchases. The main plans for shifting this responsibility may be described as follows : ' ' The president of the school prepares and sends to the Board of Control, about a month in advance of the issuance of an order, an estimate of the cost of all supplies needed by the school, based upon competitive bids. The Board approves or disapproves. On receiving the approval the president enters the order. At the end of each month the bills are sent "Ibid., p. 31. 110 Legislative Control of State Normal Schools TABLE 10 Methods op Odebinq Supplies Supplies Ordered by STATE President Secretary or Head Dept. Sec. Board Bus. Agent Finance Com. Purchasing Agent Financial Board Alabama X X X X X Arizona Arkansas California X X Colorado X X Connecticut _ X X X X X X Georgia Idaho X Illinois Indiana Towa. X X X Kansas Kentucky X X X X X X X Maine Maryland X Minnesota X X X X X X Montana X Nebraska X New Jersey. X New Mexico X X New York. X X X X X X Ohio X X X X X X X Vermont X X X X X X West Virginia X X X X Total 31 8 10 7 5 Significance of Different Types of Boards 111 to the board for approval. They check them and order the bill paid by the secretary of the school. An emergency fund — called a revolving fund — is allowed by law. The State Board of Con- trol has complete jurisdiction over all expenditures. They have the authority to pre-audit every proposed expenditure of every state institution." The correspondent further says, "In gen- eral the system is a satisfactory one. Sometimes we find the red tape that must be unraveled an annoyance. Under a board composed of unreasonable members we could be annoyed beyond measure. ' ' "Supplies for normal schools are purchased through a pur- chasing agent upon requisition signed by the principal and auditor. All the bookkeeping is done at the central office. It is good in many ways ; the only drawback is the delay in obtaining supplies. ' ' Another correspondent, in speaking of purchases made by a business agent of the board, says: "Requisitions are made by the president and sent to the board ; if it approves the requisition is sent to the board of affairs ; if it approves it places the order. A copy of the order is sent to the president. The creditors make sworn claims in triplicate which the president 0. K. 's and sends to the board; it passes them and sends to the board of affairs which retains one copy and sends the other to the auditor who may approve or disapprove; if he approves he has a warrant drawn for the bill. Perhaps no greater amount of red tape has ever been found in the United States. " " The president and his secretary attend to all the buying. All orders are placed on order blanks, and checks are sent out on the tenth of each month. The checks are approved by the president and signed by the treasurer. Each month the bills are made into a budget, checks issued, and the executive board [president, one member, and treasurer] approves these bills. At the regular meeting [quar- terly] of the board the action of the executive committee is ap- proved. "We find this system satisfactory for the reason that it allows the buyer to take advantage of low prices at his discre- tion, and at the same time keeps a rigid check on all the bills paid by the institution." From a school where the president is held directly responsible we have this information: "Sup- 112 Legislative Control of State Normal Schools plies are ordered by the president of the school. Bills are paid upon the approval of the president when certified to by him. ' ' 2S Before considering the merits of these plans in detail the chief duties of a normal school president should be considered. F. M. McMurry, in speaking of the duties of a principal in a city school system, says: "Two kinds of duties whose relation to each other is of the highest significance confront him from the start. On the one hand he has to look after the condition of the build- ing, the janitor service, and the fire drills ; to consult with par- ents and children about tardiness, truancy, other misconduct, and the health of the pupils; and to advise with teachers about these same things, together with the lighting of rooms, adjust- ment of seats, care of desks, and books. On the other hand, he is responsible for such an organization of the school as will se- cure a high moral tone and for such assistance to the teachers as will place the instruction on a high plane. In other words, there is a very large class of duties, largely mechanical, that be- long to the general manager and business man in distinction from the educator. There is another large class dealing with instruction and the formation of good habits, that are technical in character, calling for skill as an educator. Not all of the prin- cipal's duties fall easily in one or the other of these two groups, but in the main the distinction is valid. "Which of these two shall dominate the other and occupy the greater portion of his time, is one of the first questions to con- sider in judging the efficiency of a principal. If he is primarily a business manager he should be judged as such. If he is pri- marily a professional leader, he should be judged very differ- ently. The purpose of the school leaves no doubt about the proper decision of this question, for it makes the business man- agement of the school only a prerequisite to its more important work of education. Proper attention to physical conditions, and to numerous other details of general management, secures only the conditions on which effective instruction and government depend ; and it is, therefore, merely a means, while the latter are the ends. A principal of a school must be closely identified with "Personal correspondence. Significance of Different Types of Boards 113 instruction ; and he must be judged primarily as a leader in that field, i.e., as a supervisor of instruction." 29 McMurry further says: "The manifold duties of principals should be classified into three groups: (1) Those that are purely clerical; (2) those that concern instruction more or less, but that are largely routine and therefore require little special ability; (3) those that require the technical ability of the educational specialist. Such a classification having been effected, the sim- pler tasks in (1) and (2) should be assigned to minor officials in such a way that the principal has very little responsibility in regard to them. Then a very definite understanding should be reached that the principal shall identify himself primarily with the duties listed in group (3)." 30 Theisen, after examining ' ' the provisions made by city boards of education for centering authority in the hands of the chief executive, i.e., the superintendent and his assistants," and by a brief examination of the rules and regulations of business con- cerns for centering authority, concludes that "the form of ad- ministration which makes for efficiency in these fields is central- ized or coordinated. It is one in which professional leadership is recognized and in which executive functions are assigned to experts. ' m It is readily admitted that the president of a state normal school is neither a principal in a city system nor a city superin- tendent, but we maintain that his duties are sufficiently similar to permit the application of the same principles of administra- tion. To substantiate this position we quote again from the Missouri survey of state normal schools. Under the heading, "Modern Conception of a President's Duties," we find: "As educational institutions have become larger and more complex, the mass of intersecting relations has made it imperative that the guiding mind be set free, for close, detached study of the principles that govern all this and other institutional procedure ; that time be provided for abundant outside observation, com- parison, and reflection; and that he be so lifted above detail as ^RfcMurry, F. M., Elementary School Standards, pp. 175,-76. "Ibid., p. 210. "Theisen, W. W., The City Superintendent and the Board of Education, p. 100. 114 Legislative Control of State Normal Schools to serve steadily, without waste or hurry, his main function — to be the inspiring power and illuminating interpreter behind the whole organization Missouri state normal schools, with certain exceptions, are an interesting study in the respect just noted. Administrative perspect is largely lacking ; all pow- ers, great and small, radiate directly from the presidents. In one the president runs the book store, revises the registration of every student, and superintends the outlay of every penny; in another, the president registers every student in so far as this is physically possible He has recently arranged for aid in checking up each student's record for graduation, but passes finally on each himself, often reversing or modifying the conclusions of his assistant At a third school the credit records of all graduates for the decade or more that the en- quirers studied were laboriously worked out in the handwriting of the head of the institution. Administration of this type can have but one result; the guiding officials impress one as con- stantly immersed in endless affairs of surprising littleness; the schools seem truncated, lacking clear, fresh, and comprehensive thinking at the top." 32 The president of the state normal school has a large oppor- tunity to influence the educational forces of the state. A nor- mal school is strictly a professional school with a single purpose to accomplish : " . . . . institutions established by the state to pre- pare teachers as public servants for its schools should make that their sole business and concern." 33 If the purpose is as herein stated and if the duties of the president are as outlined in the preceding discussion, it is quite evident that the president should keep close to the processes of instruction. True inspiration comes from saturation with the concrete processes of the pro- fession. The concrete processes of teacher training are con- cerned with professionalized subject-matter courses, with an analysis of the teaching qualities in prospective teachers, and with the highly technical processes of the effect of each course upon the qualities possessed by the candidate. The 82 Bulletin No. 14, The Carnegie Foundation for the Advancement of Teaching, p. 274. »ma., p. 78. Significance of Different Types of Boards 115 president cannot therefore radiate that professional spirit un- less he closely identifies himself with the teaching processes of the institution. When the hoard of control recognizes the importance of re- lieving the president of the details of the office so that he may put his energy where it properly belongs, it still faces the im- portant problem of providing for the efficient handling of the necessary office details within the school. Some attempts at re- lief have been made in part because of a recognition of the facts recited above, but largely because of a desire to introduce so- called scientific management into educational institutions. Suf- fice it to say that most of these attempts have originated in the offices of the existing financial boards. As already pointed out by the data in Table 10, there are financial boards, purchasing agents, finance committees, secretaries to presidents for handling financial details; there is also evidence that the president assumes the entire responsibility. How is a financial board organized with respect to the normal school and other boards? The Board of Control of West Virginia, the Board of Control and Economy of Alabama, the Board of Control of Texas and the State Board of Control of California, are type of financial boards. By way of illustration, the first named board consists of three members and is appointed by the governor for a term of six years. This board receives and disburses appropriations made by the state, and all moneys collected by all state institutions. The heads of these institutions are required to report to the Board of Control every penny collected, according to a pre- scribed form which shows (a) date of collection, (b) name of person or firm from whom collected, (c) purposes and period of time, and (d) itemized and total amount. This board has a secretary who looks after its publications, forms, records, and general correspondence ; it also has a purchasing agent, a super- intendent of buildings and construction, an expert accountant, and an office force of considerable size. Bach of the three members receives $5,000 per year. From this description it will be seen that all expenditures, including repairs and improvements, or purchases of any kind, 116 Legislative Control of State Normal Schools must be decided upon by correspondence with the board, by a visit of some member or employee of the board to the institu- tion, or by the principal to the board. The only exceptions to this are in the case of small items needed for immediate use in the laboratories, and of supplies for the dormitories which must be purchased locally. For these emergencies the principal at the beginning of his administration is given a small sum, usually $100 or $200, which is called "an advance allowance." From this fund the principal pays these emergency bills, taking TABLE 11 Showing Comparison op Prices on Articles Needed by a School Dormitory Name of Article Paid by Board Local Retail Local Wholesale Fine granulated cane sugar Kellogg 's toasted corn flakes Black pepper Old Reliable coffee, cwt Vinegar Octagon soap Full cream cheese Gold Medal flour, bbl Water White oil Diamond oyster crackers ~ Breakfast bacon Pure lard S. C. hams California evaporated peaches Sweet mixed pickles, 8 kg. 10 gal. Lima beans _ Boiled oats, cs Arbuckle's roasted coffee, cwt Standard corn, doz. .... Puffed rice, cs Early June peas, doz $ .07% 2.85 .15 24.71 .13 .04 .17 7.00 .12% .06 •18% .11% .17% .08 5.25 .09% 2.85 19.00 .75 2.85 .90 Js .09 2.97 .18 30.00 .25 .04 .20 8.00 .15 .07 .22 .13 .22 .12% 9.00 .08% 3.00 21.00 .90 5.00 1.00 $ .07% 2.85 .15 24.71 .22 .04 .17% 7.00 .12 .06% .21 .14 .21 .07% 7.00 .09 2.90 19.00 .75 4.25 .90 receipts in duplicate, one of which he files in his own office, the other he sends to the board which reimburses him to the amount of the expenditure. However, all supplies of any consequence must be ordered in advance by requisition upon the board. The advantages claimed for Boards of Control are as follows : A. That they are economical, i. e., the Board of Control saves considerable money in purchasing supplies. Table 11 shows that Significance of Different Types of Boards 117- there is not a great deal of difference between the prices quoted by one wholesale store and the prices paid by the board of con- trol on food supplies for the dormitory. There is, however, a wide difference between the local retail price which the former local board paid and the wholesale price now paid by the board of control on food supplies. There is also a greater difference where permanent contracts are made for different kinds of school supplies. This is shown by several typical examples : 34 Board School Contract Price Price Remington typewriter $ 50.00 $ 35.00 Auditorium chairs (800) ,. ea. 1.35 1.15 Knabe grand piano „ 485.00 395.00 Quality of coal ton 4.25 3.85 Laboratory furniture 960.00 827.00 B. That by being state-wide instead of local, the same ba- sis may be used for the classification of receipts and expendi- tures among the different schools of the state. This fact makes it possible to say that school A has spent ten per cent or five per cent more for office supplies than school B. In like manner all other expenditures may be compared. The disadvantage in not having a common basis for the classification of receipts and expenditures may readily be seen by any one who attempts to compare items of expenditure as reported by most state in- stitutions. Keference to Appendix B will substantiate this claim. C. That the system removes the school largely from local prejudice and factional fights needs no argument. The interest of the community as a whole is much greater in the normal school, for all realize that the board of control acts for the inter- ests of all citizens and not for a chosen few. If supplies are purchased locally the purchaser is generally accused of favoritism; when supplies are purchased by a state board the school avoids this criticism. D. That the system offers an opportunity for expert admin- istration has already been stated, but should be mentioned as a particular advantage. As now organized in W. Va. the Board of Education and the Board of Control have men of high '"Normal School Becords, Athens, W. Va. 118 Legislative Control of State Normal Schools educational and business standing. The secretary of the Board of Education has made a special study of educational problems, and the president of the Board of Control is a man of recog- nized business ability. The buyer, the superintendent of build- ings and construction, the accountant and other employees are specialists in their fields. The disadvantages of such boards are as follows: A. The system works slowly, and the time lost in operating it can hardly be measured in dollars and cents. Table 12, relat- ing to purchases for one institution and covering a period of six months for each of three years, shows exactly the time which elapsed between making the requisition and the notice of pur- chase. The date of receiving the article is, of course, always much later. It will be noted that the time varies anywhere from two days to 210 days. Items upon which the board asked for com- petitive bids naturally require considerable time, but in prac- tically all cases the time seems unnecessarily long; no doubt part of the delay was caused by the great amount of executive attention as well as detailed work required of the board. Sometimes there is so much delay in the payment of bills that creditors become impatient. This is especially true of farmers, who like to turn their produce into ready cash; if they cannot do this they prefer to sell elsewhere, or charge the school a price which will compensate for the delay. Business firms, too, be- come impatient and it is sometimes necessary to ask them to ex- tend the thirty-day discount period on bills. For example, if items are purchased on the first or second of the month the bill is approved and sent to the board the thirtieth of that month. By the time it goes through the routine of the office of the board several days have elapsed before the check is returned to the office of the institution which approved the bill; it must then be mailed to the creditor. Table 13 shows the time elaps- ing between sending the bill to the board for payment and the time of sending the check to the creditor from the principal's office. From this table it will be noted that the time when the checks arrive from the board is very irregular, varying from five to twenty-seven days, with a median of eighteen. This fact Significance of Different Types of Boards TABLE 12 119 Showing Time Required to Secure Supplies Through Board of Control Date of Date if Notice Time Item Needed Requisition of Purchase Req. Office chairs July 10, 1912 July 12, 1912 2 da. Catalogues tt 17, Aug. 1, 15 Folding chairs ti 19, ( ( 23, 4 Janitor supplies Aug. 23, Sept. 3, 11 Chemicals it 14, Mar. 4, 1913 210 Cooking utensils a 24, Dec. 24, 1912 122 Teachers class books it 27, Aug. 29, 2 Food supplies Sept. 4, Sept. 12, 8 Gasoline tt 17, Oct. 1, 15 Creamery butter, 50 lbs. Oct. 1, 8, 7 Tools for janitor Sept. 25, 11, 17 Magazines for Library Oct. 5, 23, 18 Carbide tt 7, 9, 2 Typewriter ribbons it 8, 11, 3 Kerosene 1 1 8, H, 3 Microscopes tt 12, 23, 9 Books for Library Dec. 18, Jan. 23, 1913 44 Food supplies Aug. 12, 1913 Aug. 20, 1913 8 Coal a 13, Sept. 3, 21 Chemistry supplies tt 15, ( I 3, 19 Crayon and erasers 1 1 18, Aug. 21, 3 Window shades tt 28, ti 30, 2 Physics supplies Sept. 16, Oct. 20, 34 Magazines and papers n 27, a 14, 1'. Microscopes Oct. 2, tt 14, 43 Cooking utensils tt 7, tt 20, 22 Cooking utensils a 7, Nov. 8, 32 Covers for pianos n 27, 1 1 12, 16 Maps Nov. 15, Feb. 2, 1914 79 Steel ladders tt 25, Dec. 8, 1913 8 Food supplies Dec. 2, 1 1 9, 7 Floor oil tt 4, a 6, 2 Books for Library tt 9, Feb. 19, 64 Kerosene 1 1 13, Dee. 27, 4 Brooms 1 1 16, tt 18, 2 Catalogs May 19, 1914 July 8, 1914 50 Office supplies July «, tt 15, 9 Coal Sept. 1, 52 Furniture for not later than tt 11, Aug. 20 i 20, Aug. 12 to Aug. 31 22 Laboratory supplies n 27, tt 29, 1914 33 Office supplies tt 30, tt 18, 19 Food supplies Aug. 7, tt 19, 12 Seed for crops 1 1 7, it 21, 14 M. T. supplies Sept. 4, Sept. 22, 8 Desk telephone tt 8, tt 17, 9 Carbide tt 8, tt 10, 2 Gasoline tt 14, tt 22, 8 Food supplies tt 15, tt 17, 2 Magazines and papers Sept. 16, 1914 Sept. 29, 1914, 13 da 120 Legislative Control of State Normal Schools Magazines and papers Subscription to Curr't Evts. and World's Chronicle Ref. books for library Carbide Lumber for Man'l Tr'g. Concrete walk Bepairs at Dormitory Paint for Dormitory Window shades Window glass Dem. Sci., Chem. and Agri. Labs., plastered and fitted Sept. 16 1914 Sept. 29 1914 13 da Oct. 2, 3 a 30, tt 30, Oct. 2, 3 a 30, Oct. 2, 3 Oct. 3, Oct. 5, 2 July 11, July 21, 10 a 18, tt 21, 3 tt 18, tt 25, 7 tt 29, Aug. 13, 15 Aug. 30, tt 8, 9 Oct. 3, Oct. 5, TABLE 13 Showing Date of Sending Bills to the Board, and Date of Receiving Checks fok Same Sending Bills 1913 April May June July Aug. Aug. Oct. Nov. Dec. Dee. 1914 Feb. March April May June July June Aug. Sept. Oct. Oct. Dec. Beo'd Checks 1913 2 April 21 ... 3 May 15 ... 4 June 26 ... 5 Aug. 1 ... 4 Aug. 18 ... 25 Aug. 30 ... 2 Oct. 23 ... 4 Nov 22 ... 2_ Dec. 22 ... 20 1914 Jan. 9 ... 2 Feb. 18 ... 4 March 17 ... 3 1 May 15 1 - June 15 6 July 20 18 June 25 1 Aug. 20 4 ., Sept. 24 2 Oct. 16 31 < Nov. 13 2 Dec. 10 No. Days 19 12 22 27 14 5 21 18 20 20 16 13 Dec. 20.. April 16 13 14 14 _ _ 14 7 19 20 _ _ 14 13 17 11 1915 Jan. makes it impossible to promise a creditor his check at any par- ticular time. The Board says, "It is impossible for us to set a certain date at which we can promise to forward checks to you for payment of your bills. Our accounting department is en- Significance of Different Types of Boards 121 gaged practically all of the month in paying off all the bills of the different state institutions under the management of this Board, and in fact sometimes scarcely gets the bills for one month paid before those of the next month begin to come in. Some months the bills for an institution are paid early in the month, and the next month the bills for the same institutions are paid considerably later. We have no regular order in which the bills of a particular institution are paid." The above disadvantage could be overcome, first, by care on the part of the principal to anticipate the needs of his school several months in advance, and not month by month or day by day, as is often the case; second, by the Board giving the prin- cipal a larger advance allowance fund, and by allowing him to pay all small local bills promptly; third, by keeping a larger office force in the Board's offices so that all supplies could be ordered immediately upon receipt of the requisition. B. Another disadvantage is the fact that it is difficult for any board operating at a great distance from an institution to see the needs of the institutions, and to allow expenditures in proportion to these needs. To call the Board by telephone from one institution which is the median distance for all institutions, in this particular state, costs ninety cents for a three-minute conversation. For a member of the Board to make a trip to the institution referred to above, or for the principal to visit the Board, costs for transportation as follows : Eailroad fare — Charleston to Princeton $3.50 Chair car 65 Hack or automobile, Princeton to Athens 75 Return trip _ $4.90 Total (exclusive of hotel bills) $9.70 The following shows the visits to the institution covering the period indicated by the dates : Visits bt Board of Control ■November 5, 1909 Member September 8, 1910 Member December 17, 1909 Member March 3, 1911 -.Member March 21, 1910 Member July 2, 1911 Member April 6, 1910......Pres. and Member November 25, 1911-- Member May 7, 1910 Two Members April 12, 1912 Member August 18, 1910 President 122 Legislative Control of State Normal Schools During the school year 1913-1914 a certain normal school had one visit by the president of the Board and one by the Board's engineer. In the summer of 1914 it had one visit by the en- gineer, and no visits from September to January. From the foregoing it is evident that it is very difficult for the Board to keep in close touch with the needs of the school, and for the prin- cipal to get action upon any question in a reasonable length of time. Thus we have seen that a state-unit board controlling educa- tional and financial policies with experts for each type of ser- vice is the only type of board which can fulfill the real functions of a board as they relate to teacher training institutions. The local multiple or dual type is deficient in many respects. Since the president of the normal school is a large factor in its effi- ciency, he must be free to ally himself with the professional in- terests of his school. The financial board, which has many of the defects of a state purchasing agent, or a finance committee, and others besides, is not a professional asset to a normal school. Educational ideals and financial support go hand in hand and must be controlled by the same central authority. Summary Our problem for this study has been to show how the provi- sions made by legislative enactment and the interpretation of these provisions affect teacher training agencies. In answering the question it was necessary to exhibit data on the differ- ent states having typical state normal schools. Forty-four states have such schools, and the data relating to the legislative control of these schools, with similar data for most of the other educational institutions found in each state, were given in outline form in Section I, Chapter I. An analysis of these data as a whole revealed the fact that there were distinct types in several states. These types of control have been referred to as local, state, multiple, and unit with a slight variation in a few states. The problem was then broken into parts and at the beginning of Chapter II these questions were raised: 1. What is the best type of board a state can provide for its teacher training Significance of Different Types of Boards 123 institutions ? 2. What details should be included in these pro- visions? 3. What kind of organization should the board make for its own work? 4. What kind of organization should the board provide for the work of the institution it controls? In answer to question 1 we have tried to make it clear that since the teacher training problem is one big unified task for the state, namely, that of supplying an adequate supply of trained teachers for all its schools, there should be a definite policy lead- ing to a state-wide program. ( This program dan be carried out economically and efficiently only through a state-unit type of control. In answer to question 2 we found that if certain de- tails were included or omitted from legislative enactments the efficiency of the board thus created would probably be increased. These details refer to methods and time of appointment or elec- tion, number of members chosen, length of term, number of ex- officio members, and the compensation. Question 3 was answered by emphasizing a well-established principle which makes the real duties of a good board largely legislative. Since there are details relating to the educational interests of the state and business details within the organiza- tion of the board, we recommend that these be left to the respect- ive experts in each field. By an analysis of the work of the in- stitution we found two kinds of activities necessary. One is purely educational, the other business. The former is always taken care of by the teachers; the latter generally by the prin- cipal or president. Through authoritative opinions and argu- ment we tried to establish the fact that the president's main functions in a teacher training institution relate to the profes- sional aspects of the school ; therefore, in answer to question 4 it may be said that the board must provide sufficient office force to take care of all necessary details. CHAPTER III PROVISIONS RELATING TO TEACHER TRAINING AGENCIES PROPOSED FOR LEGISLATIVE ENACTMENT From the conclusions arrived at in the preceding chapter the following provisions for the control of state teacher training agencies are proposed for legislative enactment. State Boaed of Education Section 1. Name. Number of Members. There is hereby cre- ated a State Board of Education which shall be a corporation and as such may contract and be contracted with, plead and be impleaded, sue and be sued, and have and use a common seal. Said board shall consist of five members. Section 2. Appointment. Term. The members of this board shall be appointed by the governor of the state for the follow- ing terms: one for two years, one for four years, one for six years, one for eight years, and one for nine years. Thereafter the governor shall, at the expiration of each term, make an ap- pointment for the term of nine years. Section 3. Salary. Expenses. No member of this board shall receive a salary for his services, but each may receive a per diem of not more than ten dollars per day and not to ex- ceed twenty days in each school year, and actual expenses in- curred while attending the meetings and performing any other duties of said board. Section 4. Duties. The board shall have full power and con- trol of all the educational and financial interests of all state teacher training agencies, now including the state normal schools, the department of education in the university, and similar de- partments in any other state institution now existing or hereaf- ter established. It shall, upon the recommendation of its ex- pert employees and officers, prescribe rules and regulations for teacher training work in private and denominational schools and Provisions Relating to Teacher Training Agencies 125 colleges, and the high schools within the state, and through its commissioner supervise such work. Said board shall make full provision for the financial and business routine of its own office, and for the educational and business activities of the institutions it manages and controls. In so doing it shall appoint and determine the salary of a sec- retary who shall be an educational expert and who shall co- operate with the heads of the institutions and with the commis- sioner of education in matters concerning the board, the in- stitutions, and the public schools of the state. It may also ap- point a business manager, a buyer, and such other clerical help as may be necessary in performing its duties. It shall appoint the heads of the teacher training institutions. It shall appoint the heads of the institutions, who shall at all times act as an advisory committee to the board. The board shall also provide sufficient office help within each institution to carry on the business details, and shall with the advice and consent of the above named advisory committee determine what details are to be handled at each institution and what details are to be handled in the central office of the board. After the above executive duties are attended to the chief work of the board shall concern the aims, purposes, and policies of the in- stitutions in respect to the service that each renders the state. Distinctive Features op Proposed Legislation The above is an attempt to provide a board for the effective control of state teacher training agencies. This study does not undertake to present data on the policy of a unit board for all state educational institutions, yet almost every step points towards such a board. Hence these provisions have been constructed so that they may be easily converted into such a board as shown by the graph on page 126 and such a procedure would certainly be of no disadvantage to the teacher train- ing institutions. Reasons for the details of the above provisions have been found in the study. It should be noted particularly that an attempt is made to define the main duties of the board in its responsibility for the large constructive educational measures which concern the problem 126 Legislative Control of State Normal ScTiools Peo PLC Gov. « Adv-Boaed! I St Board Ep. | president Normal Board's 5ccV Com. Ed Heads Other Inst. Faculty School. Bus. Off. ^7 Board's Bus. Off fc> >b *> ■i) f- u &> U H <0 f? 3 * & OQ cO Type op Board Suggested for State Teacher Training Agencies, Its Organization and Its Relationship to These Institutions of training teachers. Authority, however, is centered in this board for all financial and educational details. Clerical help is provided for all financial details, and the educational policy is secure in the hands of educational experts with a lay board for endorsement. Provision is made for statewide purchases when- ever they can be made to advantage, and clerical help for com- puting unit costs and uniform accounting. Sufficient help is given to the office of each institution to manage in an efficient fcnanner the details which naturally fall to it. With the ad- Provisions Relating to Teacher Training Agencies 127 vice and consent of the heads of the institutions the board should agree upon the distribution of business details between its office and the offices at several institutions. "With such a plan the main duties of the board must concern the large construct- ive measures as they relate to each institution, and the head of the institution must give his time and energy to professional rather than business details. The Committee on Normal School Standards and Surveys of the National Council of Normal School Presidents and Principals says: The administration and control of normal schools obviously depends upon what the state has established by action of its legislature. Naturally this control is different in different states. Every typical form of adminis- trative control that has been tested out by human experience has revealed disadvantages and defects. It is probable that in the future as in the past changes in the type of administrative control will be made. The tendency toward centralization of control will probably be extended in many states to include the normal schools. The normal schools have nothing to fear from centralized control per se. If the centralized control were biased in its judgment or were controlled by influences uniformed and unsympathetic, the normal school might temporarily suffer. It would not, however, per- manently suffer because it is so close to the source of all social power and so serviceable to public education. Therefore, it may be fairly said that the normal school is largely indifferent to the type of administrative con- trol which the state may adopt. Yet it is our belief that the normal schools secure the best means and opportunity for free development when the board of control is composed chiefly of laymen rather than of professional educators. An efficient board for teacher training agencies would, there- fore, contain at least the following provisions: 1. A single unit board having control of and being responsible for all educational and financial matters. 2. The members appointed by the governor or elected at a separate election. 3. The number of members should be small. 4. There should be no ex-officio members. 5. The length of term should be reasonably long, at least longer than that of the governor of the state. 6. The members should serve without compensation. 7. Their duties should be mainly those relating to constructive policies, rather than those relating to professional, business, or clerical details. As a matter of interest and by way of throwing more light upon the legislative provisions relating to state normal schools 128 Legislative Control of State Normal Schools as they now exist, Table 14 has been constructed from the seven points listed above. To each point is assigned a credit of 10, making a possible total of 70 credits for any state having provisions for controlling its state normal schools approximating the above outline. Let it be understood that this is not an at- tempt at scientific measurement, but merely a device to show wherein each state's provisions are weak in comparison with the ideals advocated in this study. By reference to Tables 1 to 8, the data for such comparison will be found. Since some variation is found on these points in some states it is necessary to give extra credit or deduct according to the standards advocated in the study. If a state has a unit board for all its state normal schools, it is given a perfect score of ten. If it has the dual type of control, i. e., a financial board also, it is scored 5. If it has a joint board of higher curricu- la, or council of education, it is given five additional points. If it has two ex-officio members, it is given zero ; if one and that the state superintendent, it is given 5. In scoring on the length of term the median of the states is accepted. This is approxi- . mately five years. For a shorter term than this zero is given, while one-half credit extra is given for every year longer than the median. In the number of members again the average is taken rather than the ideal which we have established. If the state board has fewer than six members an extra credit of one- half is added, if more than six one-half is deducted for each member. A salaried board is one that receives more than ex- penses and a reasonable per diem. The most important point and yet the most difficult to rate upon is the distinction of du- ties. Since only four states indicate any intention to define the duties as to kinds, it was necessary to give these a little extra credit and rate the others uniformly low on this point. A credit of two and one-half points was decided upon. It seems reason- able that the board may rightfully spend one-fourth of its time upon executive matters, the other three-fourths upon constructive measures, and none at all in clerical business or professional details. Table 15 has been constructed from Table 14, and shows the relative rank of the forty-four states included in this study. Provisions Relating to Teacher Training Agencies 129 TABLE 14 1 tag 2 a s PS5H 6 8 I" "8-S IE Si 5 s 3 > as S M Alabama Arizona Arkansas California Colorado Connecticut Georgia Idaho Illinois Indiana Iowa. Kansas Kentucky Louisiana _ Maine Maryland Massachusetts- Michigan Minnesota Mississippi Missouri Montana Nebraska New Hamshire... New Jersey _.. New Mexico New York. North Carolina.. North Dakota.... Ohio Oklahoma Oregon.- Pennsylvania Rhode Island South Carolina- South Dakota..... Tennessee Texas Vermont Virginia Washington West Virginia. Wisconsin Wyoming 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 5 10 10 10 io im 10 1 10 10 8 y 2 io y 2 1 y 2 1 10 1 8 10 10 10 10 9 10 10 y 2 10 9 io y 2 io y 2 9 y 2 io y 2 7 10 10 3 10 10 10 8 y 2 io iy 2 9 io y 2 8 y 2 10 10 7 io iy 2 10 8 10 io zy 2 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 10 y 2 y 2 y 2 y 2 y 2 y 2 y 2 y 2 H y 2 y 2 y 2 y 2 y 2 y 2 y 2 y 2 zy 2 5 5 5 w 2 2y 2 zy 2 m y/ 2 iy 2 5 3 2y 2 yy 2 2y 2 2y 2 2y 2 2y 2 2y 2 2H 2H 2y 2 2H 2y 2 2y 2 2y 2 2y 2 2y 2 2y 2 2H 2y 2 2y 2 2y 2 2y 2 2y 2 2H 2y 2 2y 2 2y 2 2y 2 61. 45.5 46. 35. 58. 51.5 33. 56.5 51.5 52.5 61. 38. 41. 53. 49. 62. 47.5 53.5 46.5 52. 48. 41.5 53. 58. 57. 43. 62.5 53. 45.5> 52.5 47.5 53. 41. 53.6 42. 53.5 56.5 48. 62.5 29.5 59.5 43. 55.5 58. 130 Legislative Control of State Normal Schools TABLE 15 States Ranked According to Total Scores (Based on Table 14) Vermont 62.5 New York 62.5 Maryland 62. Iowa 61. Alabama _ 61. "Washington 59.5 Colorado 58. New Hampshire - 58. Wyoming 58. New Jersey 57. Idaho 56.5 Tennessee _ 56.5 Wisconsin 55.5 Michigan 54.5 Rhode Island 53.5 South Dakota 53.5 Louisiana 53. Nebraska 53. North Carolina 53. Oregon 53. Ohio 52. Mississippi 52. Indiana 52.5 Illinois 51.5 Connecticut _ 51.5 Maine _ 49. Texas 48. Oklahoma 47.5 Massachusetts 47.5 Missouri 47.5 Minnesota 46.5 Arkansas 46. Arizona 45.5 North Dakota 45.5 West Virginia 43. New Mexico 43. South Carolina 42. Montana 41.5 Pennsylvania 41. Kentucky 41. Kansas 35. California 35. Gteorgia 33. Virginia -. 29.5 CHAPTER IV RESULTS OF SUGGESTED PROVISIONS As a possible outcome of the conclusions reached in this study it is hoped : First, that the unit type of board will be provided for at least all state teacher training agencies, and that these boards will have the supervision of all other teacher training agencies which may exist in the state. Second, that the duties of the board will be confined largely to legislative and approval meas- ures and that all educational and business details will be placed in the hands of experts. Third, that the board's concept of the duties of its chief educational expert (president of the nor- mal school) will be such that it will provide a business organi- zation which he needs merely to supervise, and that it will allow him to spend the major part of his time with the pro- fessional activities of the institution. Fourth, it is further be- lieved that these principles will make possible and lead to the adoption of a classification of receipts and expenditures and of other business forms which will give much aid in studying the educational problems relating to teacher training agencies and other institutions. The Committee of Eleven, in speaking of a plan for normal school statistics, says: "State normal schools are now more numerous and probably more essential and more appreciated than any other kinds of state educational institutions Their organization is simple, their support is direct A proper study of statistics, a proper classification of organized efforts, a proper conception of what is being done everywhere in the endeavor to train and to educate teachers must enlarge the horizon of these schools, must compel them to recognize their chances, must urge them to enlarge their field of usefulness and power, and must enable them to enter upon activities and pos- sibilities that would make it possible for them to participate in the remarkable development that the United States is receiving. .... Without this knowledge of what is going on elsewhere, Missing Page Missing Page 134 Legislative Control of State Normal Schools X. Text-books. Text-books, pictures and music used in regular instruction. Not sheet music soon used up. B. Maintenance I. Land and Land Improvements. Replacing trees, shrubs, fertilizer. II. Buildings and Fixtures. New roofs, painting, replastering, dry batteries, lamps, rewiring. III. Machinery. Belining boilers, replacing grates, repairing motors. IV. Educational Apparatus. All repairs. V. Furniture and Furnishings. Upholstering, refinishing, relaying linoleum, replacing dishes. VI. Hand Tools. All repairs. VII. Library. Rebinding books, replacing worn-out books. C. Operation I. Administration. 1. Salaries of officers; principal's salary. 2. Salaries of clerks and stenographers, bookkeepers, and all office help. 3. Traveling expenses of the principal. 4. Stationery and office supplies. Letterheads, ink, paper, pens, pencils, pads, type- writer and adding machine supplies used in the office — not supplies used in the training school. 5. Postage stamps, postal cards, postage on catalogs. 6. Telephone and telegraph — long distance and local charges. 7. Express, freight and drayage, and transportation of all material. 8. Printing (other than stationery). Catalogs, bulletins, miscellaneous printing and Results of Suggested Provisions 135 advertising. Not class record books, or printing used for instruction only. 9. Sundry supplies and expenses — not readily classi- fiable elsewhere. II. Physical Plant. 1. Salaries and wages. a. Engineers — includes firemen and all extra help needed in keeping the building heated. b. Janitors — includes cleaning, scrubbing, care of grounds, walks, lawns. 2. Heat, light, water. All fuel for lighting or heating — not for instruc- tion purposes. 3. Sundry supplies: Brooms, mops, cleaning sup- plies, hooks, wires, nails, lubricants, and all sup- plies used for janitor or engineer consumable in school expenses for the main school year. 4. Sundry expense: Hauling ashes, flowers for dec- orations of rooms or grounds. III. Instruction. 1. Salaries of teachers. Regular and substitute. Sal- aries of pianists and student help for teachers. 2. Text-books: Regular text-books and also music books used for chorus practice and class work — not sheet music soon used up. 3. Fuel and power for instruction. All fuel and power used in the laboratories and for other in- struction purposes. 4. Sundry supplies: Acids, test tubes, beakers, ink, crayon, paper, pens, pencils, tablets, copybooks, erasers, class books, sheet music, ribbon for diplo- mas ; all consumable supplies whatever, including those for special departments. 136 Legislative Control of State Normal Schools 5. Sundry expense: Teachers' traveling expenses, lectures of a special nature, special charts and other instructional expense not classifiable else- where. IV. Library. 1. Salaries of librarian and assistants — regular and student help. 2. Subscription to newspapers and periodicals — all periodicals taken for the library, but not the binding of them. 3. Sundry supplies and expenses — temporary covers for books, magazines and other supplies. V. Student "Welfare Activities. 1. Student health. Medical inspection provided by the school ; medical advice for pupils ; lectures on sanitation. 2. Entertainments, lectures and concerts. 3. Athletics. Money paid for coaching, traveling ex- penses of teams, expenses of umpires, referees. 4. Student organizations. Debating or literary so- cieties; student publications. VI. Summer Session. This includes all sub-items of all the main headings listed above and is intended to list all summer school expenses for the main school year. VII. Insurance. All payments for state insurance, or boiler insurance. VIII. Undistributed expense. All expense not classifiable elsewhere. Care should be taken to put very few items under these general headings. An accurate classification of items of expenditure will fall short of its purpose unless there are uniform blanks for all op- erations dealing with the finances. The following business forms are recommended for use in the principal's office and in the office of the board. Results of Suggested Provisions 137 A. Foems for Use in the Principal's Office 1. Eeport of cash collected. 2. Eeport of enrollment and attendance. 3. Inventory of school property. 4. Requisition blank. 5. Payroll of teachers and other employees. 6. Voucher to accompany all bills. 7. Report of cash expended by the principal. B. Forms for Use in the Board's Office 1. Quotation blanks. 2. Purchasing order. 3. Appropriation ledger sheet. 4. Expense ledger sheet. — Normal school. 5. Expense ledger sheet. — Training school. 6. Expense ledger sheet. — Dormitory. 7. Register vouchers. 8. General balance sheet. 9. Monthly statement of receipts, expenditures, and balances. 10. Monthly statements of unit costs per general expendi- tures. 11. Annual statements of unit costs per subject. C. Forms for Use in the Board's Annual Report 1. Statement setting forth the kind of school and its pur- pose. 2. Cash collected from enrollment fees. 3. Appropriations and other receipts. 4. Voucher register. 5. Summary of expenditures. 6. Special personal service record. 7. Enrollment and graduation record. 8. Instructional cost per department. 9. Student clock hour load. 10. Cost per student clock hour load. 11. Graphs and comparative tables. 138 Legislative Control of State Normal Schools Details of Forms Recommended A. Foems for Use in the Principal's Office 1. Record of Cash Collected. The enrollment of pupils is the first step at the beginning of each new school year. This process entails the collection of certain fees which must be reported to the central authority; hence the necessity of a cash collected blank. Provisions are made on this blank for the following items: (a) classification of pupils enrolling; (&) date; (c) name; (d) time covered by the payment; (e) enrollment fee ; (/) laboratory fee; (g) room; (h.) board; (i) miscellaneous; (j) recapitulation. Proper classification of pupils should be insisted upon. Under the heading of laboratory fees the name of the laboratory in which the pupil is working should be given; this will save many columns, and make the report less bulky. Non-resident and other miscellaneous fees which are collected infrequently may also be written in order to save making the form too bulky. A suggested form is shown on page 139. Results of Suggested Provisions 139 a •a 18 .3 » o H s B £ <* "0 J 8 o n (K 7 Secon- dary En- rollment Fee o U>_ i 60 * a o a o .5 o o - w M -C <- ° fa a U M O B £ HcnW a V. P fa o -a ■8 a! V u o .1 » a a Z « Q 140 Legislative Control of State Normal Schools 2. Report of Enrollment and Attendance. A report of enrollment and attendance should be made at least twice each year. The items which the form contains are self-explanatory: a. Number enrolled in the regular normal course. b. Number enrolled in the secondary course. c. Number enrolled in music. oZ. Number enrolled in art. e. Number enrolled in expression. f. Number enrolled in short or other courses. g. Total in all courses. h. Number counted more than once. i. Total net enrollment. j. Training school enrollment must not be included in above. k. Number who withdrew after enrolling, and causes of with- drawal. REPORT OF ENROLLMENT AND ATTENDANCE State Normal School Semester, Ending , 19.. Enrollment During Semester.. Normal Course Secondary Course College Course _ Music — Art - .. Expression Total : Counted more than once Net Enrollment Practice School Enrollment- Withdrew during Semester Causes of Withdrawal: Boys Girls Total It may be noted that this form is so constructed that there is no oppor- tunity to count the same pupil twice and thereby swell the enrollment be- yond what it should be. Results of Suggested Provisions 141 3. Inventory of School Property. At the beginning of each school year there should be a care- ful inventory of all school property. This should include the following items : a. Detailed description of the property, and the use to be made of the room or building during the year. o. Age — length of time it has been used. c. Original cost. d. Additions. e. Present value. /. Time to be occupied. INVENTORY OF NORMAL PROPERTY State Normal School, July 1, 192 Detailed Description Including Present Condition and Use Age in Years Original Cost Additions (Date) Present Value Days per week Hours per day Occupied 4. Eequisitions. Since supplies are an essential part of the operation of every institution, a convenient means for ordering them is necessary. The following form is recommended, but should be printed on paper of different colors so that the color may indicate the fund out of which the bill should be paid. A duplicate of the requi- sition must be kept in the principal's office; it should differ in color slightly from the original copy. a. Order number. 6. Name of fund from which the invoice is to be paid. c. Name of firm or firms from which the items may be secured. d. Item number. e. Quantity on hand. /. Quantity required. g. Description of articles. h. Purpose for which the article is desired. 142 Legislative Control of State Normal Schools NO REQUISITION FOE SUPPLIES To the State Board of Education : The following named articles are needed at this institution livered _ To be de- Purchase From Item No. Quantity on hand Quantity Desired Description of Article Purpose Estimated Cost The Pay Boll. The pay roll should list the following items: Name of the employee. Nature and amount of service rendered. Bate per month. Amount due this month. 6. Signature — received in full. /. Principal's report of absences. g. The back of the report should show a recapitulation of the expenditures under appropriate headings, and the prin- cipal's affidavit. PAY ROLL State Board of Regents 19 To each of the persons hereinafter named for services rendered under contract with said board, the nature and particulars whereof are herein specified. Nature and Amount of Services rendered (Reverse Side) Operation Principal Teachers Librarians Clerk* Engineers Janitor , Laborers I hereby certify, &c. Prin, Rate Per month Per day Total Due Results of Suggested Provisions 143 6. Voucher to Accompany Bills. A voucher should accompany all bills which are sent to the Board. A similar one may be used by the firm in sending in- voices to the school. One side should contain the sworn state- ment; the other should summarize the account under the ap- propriate headings according to the system recommended for the classification of accounts. State of - Board of Education for State Normal Schools. To , Dr. date 192 (This is not a hill and should he accompanied by an invoice.) For Sundries furnished to Normal School as per attached invoice numbered $ State of 1 gs County of. j (Post Office) (State) I, _ , Claimant of attached invoice, do solemnly swear that the charges are correct. Subscribed and sworn to before me this day of , 19 Signed. ..Notary Public My commission expires.. I hereby certify that the items named herein have been furnished to this school, and that no part has been paid. Principal Reverse Side 1. Capital Expenditures. 3. Operation. (all main headings listed.) (all main headings listed.) $ $ 2. Maintenance. (all main headings listed.) 144 Legislative Control of State Normal Schools 7. Cash Expended. For emergency supplies it is necessary for the principal to have an "Advance Allowance" to be kept in the local bank and subject to his check. All expenditures from this fund must be reported to the Board before he can be reimbursed for the ex- penditure. a. Date. 6. To whom paid. c. Time or quantity. d. Eate or price. e. For what purpose. /. Total amount. CASH EXPENDED BY PRINCIPAL Prom _ 19 , to .19.. Time or Quantity For What Purpose Results of Suggested Provisions B. Forms for Use in the Board's Office 1. Quotation Blank. This blank should contain the following items : a. Quantity. 6. Mataerial — description. c. List price. d. Discount. e. Net price. Board of Education 145 .19 (name of firm) Gentlemen : Please quote your lowest price on the items listed below: Prices to include delivery F. O. B. The right is reserved to reject any or all bids. Give full description of articles quoted upon. No charges will be allowed for boxing and crating. Return this sheet promptly. Quantity 146 Legislative Control of State Normal Schools 2. Purchasing Order. The purchasing order is made out by the Board's purchasing agent from the prices quoted by the various firms. It should contain the following items: a. General regulations for shipment. b. Order number — to be placed on all bills. c. Name of firm. d.. Name of school. Purchasing Order State Board of Education Gentlemen : Ship the following to State Normal School Terms F. O. B.. Boute Via Eequisition No (Put this No. on bill) CONDITIONS: Invoices must be made in du- plicate, and accompanied by sworn voucher. No allowance for crating or cartage. Prepay freight and add to bill. Place order No. on package. Quantity Description of Goods Ordered Price Amount Results of Suggested Provisions 147 3. Appropriation Ledger Sheet. For the Board's own use there should be an appropriation ledger sheet upon which to record all appropriations and other receipts; this should be so arranged that a balance could be taken at any time, from which monthly balances could be taken regularly. It should contain the amount appropriated by the legislature, or the amount set aside by the Board for the school's use, the total of previous audits, the amount from other sources from which money is received, and the total amount available. Bach of these should be distributed under its proper heading according to the classification outlined. AVAILABLE BALANCES State Normal School Account Appropriated Previous This Available No. Account Current Year Audits Audit Balance I. Capital Expenditures (List here the sub-head- ings.) II. Maintenance {Sub. headings) III. Oparatioa ( Sob-headings) 148 Legislative Control of State Normal Schools 4. Expense Ledger Sheet. There should be an expense ledger sheet, or register of vouch- ers as it may be called. There should be one for each of the grand divisions of the plant ; that is, one for the normal proper, one for the dormitory, one for the training school, one for the administrative office, and one for teachers' institutes. It should show the available appropriations, the number of vouchers, the name of the payee, and the amount under its proper title of each grand division. In order to save space only one is reproduced here. VOUCHER REGISTER Credits » Debits Voucher No. Name of Payee Capital Mainten- ance Operation Appropriations Sundry Appro. Capital Main- tenance Op era- tion Acct. Amt. Vertical col- umns for each sub-heading Vertical col- umns for each sub-heading / Results of Suggested Provisions 149 5. Monthly Financial Statement. A general balance sheet should be made by the bookkeeper from the appropriation ledger sheet, and from this a monthly statement made and sent to the principal of the school. It should contain: a. Statement of the available appropriations and collections. b. Balances for the month just closed. c. Eeceipts during the month. d. Disbursements during the month. e. Balances to be expended. MONTHLY FINANCIAL STATEMENT .... State Normal School For the month of. 19.. ..Statement of current year, months remain unpaid. Name of Fund Balances 19... [ Receipts During Month Disbursements During Month Balances 19... Disbursements same month last year A. Appropriations 1. Capital (List sub-head- ings) 2. Maintenance (List sub-head* inge.) 3. Operation (List sub-head- ings.) B. Fees Collected (List sub-head- ings.) Totals Outstanding Bills State Auditors Balance 150 Legislative Control of State Normal Schools 6. Unit Costs. From the attendance report, the payrolls, and various ledgers, a statement of unit costs per general classification may be made. In a normal school we suggest that this statement be made an- nually or semi-annually. COST PER PUPIL Nature of Expense This Month Semester Year Last Month Semester Year Average 1 Sub.headinga of Capital o u g a 1 5 Sub-headings of Maintenance a 1 V O Sub-headings of Operation 7. Unit Costs per Subject. If the teachers' payroll is carefully made out, it is possible to secure the cost per subject. To distribute the capital expendi- ture, cost of maintenance, and certain operating expenditures among the different subjects is a difficult matter. Probably about the best that can be done is to make an apportionment of such costs to the subjects, charging to the courses which require laboratories and large supplies the cost of these items. UNIT COST PER SUBJECT Name Inventory of Equipment 191 Equipment and Supplies Pur- chased 191 Space Required in Sq. Ft. Hours Per Wk. in Use. Teachers Probable Distri- of Subject No. Hrs. Salary bution of Over- head Expense Results of Suggested Provisions 151 C. Forms for the Board's Annual, Report In addition to the educational features of the annual or bi- ennial report, which are usually found, there should be certain financial statements which will serve to inform the public con- cerning the receipts and expenditures of the school. Such ta- bles will furnish a basis for the public's decision regarding the investment and returns of the school. These tables should contain statements setting forth the kind of normal school, i.e., whether it aims to prepare elementary- teachers, high school teachers, or both; whether it is being de- veloped into a teachers' college, with courses paralleling univer- sity courses; whether some students are pursuing teachers' courses and some taking purely secondary courses. In order to answer these and other questions it is recommended that a statement be made and a table constructed from the cash collected report on students' enrollment as per the following form: 1. c. d. Statement of Kind of School and Purpose. Verbal declaration as to the purpose of the school. Name of course. Number enrolled in course. Amount received. We, the members of the State Board of Education, hereby declare that —.State Normal School aims to Cash Collected From E nrollment No. Enrolled Total Name of Course Boys Girls Amount Received Normal Secondary College Training School 152 Legislative Control of State Normal Schools 2. Appropriations and Receipts from All Sources. This table should be in summarized form, but should have details sufficient to indicate the proper sources of all receipts. a. Name of funds received from the state. b. Name of funds received from fees. c. Miscellaneous — gifts, receipts from investments, etc. APPROPRIATIONS AND RECEIPTS RECEIVED KROM State Appropriations Capital Maintenance.... Operation Fees Enrollment Laboratory Miscellaneous Total . 3. Record of Drafts for the Year. This record will make it possible for the public to trace each item of expenditure to its original source. It should include : a. Date. d. For what object. b. Number. e. Amount. c. To whom paid. RECORD OP DRAFTS FOR THE YEAR To Whom Paid For What Object Results of Suggested Provisions 153 4. Summary of Expenditures. There should be a summary of expenditures according to the general classification suggested. These expenditures should he summarized as per the following form: a. Capital — with the sub-headings. 6. Maintenance — with the sub-headings, c. Operation — with the sub-headings. SUMMARY OF EXPENDITURES Nature of Expense Current Year Last Year Average S Sub-Headings of Capital Total s a a ■a s Sub-Headings of Maintenance Total a 1 o B« O Sub-Headings of Operations Total GRAND TOTAL * 154 Legislative Control of State Normal Schools 5. Special Personal Service Record. A personal service record may be made according to the fol- lowing form: PERSONAL SERVICE RECORD Name of Person Rendering Service Description of Work Done Periods per Day or week Salary 6. Enrollment and Graduation Records. A. There are oftentimes many questions asked concerning the enrollment of a school. If the forms herewith recommended are used, many of these questions will be answered at sight. The facts contained in such a record would contribute much in answering questions as to the service rendered by the school to the state. ENROLLMENT AND GRADUATION RECORD Number Enrolled Number Graduated Name of Course Current Year Laat Year Current Year Last Year Normal Secondary College Total Results of Suggested Provisions MAJOR IJNES AND DEPARTMENTS A. a. Major lines of activities. b. Number enrolled each term, semester, or quarter. c. Total. B. a. Names of departments (subjects). b. Number of courses. c. Number of credits. d. Gross enrollment. 155 FORM A Major Lines First Semester Second Semester Total Kindergarten Primary Intermediate Grammar Secondary Home Ec. Man'l Tr. Agr. Rural Reviews and Sp. Unclassified FORM B Departments (Subjects) First Semester Second Semester Total Agriculture Biology Botany &c. 156 Legislative Control of State Normal Schools 7. Graphs and Comparative Tables. Since reports of state boards generally represent more than one school, graphs and tables should be so clearly arranged that the public may see at a glance the comparative costs and returns of each school. Facts concerning enrollment, graduation and instructional costs distributed as to departments, to clock hour loads and to student clock hours, should be set forth. A. INSTRUCTIONAL COST PEE DEPARTMENT Departments Direct Charge Overhead Total Agriculture Biology Botany &c, STUDENTS CLOCK HOUR LOAD Departments Direct Charge Overhead Total Agricutture Biology Botany &c. COST PER STUDENT CLOCK HOUR Departments Department Costs Student Clock Hours Cost Per Student Clock Hour Results of Suggested Provisions 157 By the use of the above forms, which have been derived from an extensive study of forms now in use, and which have been constructed in harmony with the foregoing principles of clas- sification, it is believed that there will be an original document for each transaction, that responsibility for the expenditure of appropriated funds may be fixed, and that the public will be able to judge whether it is receiving proper returns on its investment. There will also be facts for measuring the ex- penditures and returns of the schools represented in the re- port of any board, and of the schools of similar kind wherever they may be found. APPENDIX A TYPE REPORTS In this appendix will be found tables, or parts of tables, taken from the annual or biennial reports of state normal school boards. They represent the boards' statements to the public of the receipts and disbursements of the schools. As far as I have been able to find these are the only available financial statistics of the schools. Copies of such reports have been collected from practically every state in the union, and from different schools within the same state. The parts given below are intended to show the form of financial statement. Type No. 1 Type No. 1 is a type of financial report published by many normal school boards. Beceipts Balance as per report to General Assembly $ 13,080.47 Maintenance _ _ 128,124.99 Incidental fees _ 12,066.50 Other fees and resources follow, making a total of..$258,023.75 Expenditures Contingent fund _ _ $ 6,632.92 Salaries, faeulty, superintendent, engineers, etc 94,579.71 General repairs and improvements 2,220.31 Balance 48,784.66 Type No. 2 In Type No. 2 receipts and expenditures are listed un- der four different headings, viz., interest and income, mill tax, local fund, and appropriations. Since no summary is given a great amount of adding is necessary before even the total re- ceipts and expenditures can be found. Parts of the same bill are paid from different funds, a fact which makes necessary a reading of the entire report to find the total amount of the bill in question. A list of the checks issued is given, together with the number, date, to whom paid, and the Type Reports 159 amount; nothing is said about what the check was issued for. So far as real information is concerned this report covering twenty pages might as well be omitted. Type No. 2 Interest and Income Receipts Balance June 30, 1910 _ $9,112.03 Warrants, June, 1920 1,853.89 (seven other items follow) Expenditures Library and reading room $315.08 Textbooks 658.40 (fourteen other items) Mill Tax Receipts Balance June 30, 1910 _ $30,765.32 Warrants, June, 1930 486.92 Expenditures Salaries $58,274.82 Library and reading room 238.41 Local Fund Receipts Balance June 30, 1910 $18,855.17 Registration fees 2,395.25 Expenditures Boarding department _ ^$25,613.01 Incidentals 14,941.86 Appropriations Receipts Students ' hospital _ $10,000.00 Reimbursements 9,399.31 Total (including six other items) 31,899.31 Expenditures Students' hospital $ 9,957.00 Reimbursements - - ,....9,399.31 (seven other general items) Checks No. Date To whom paid 4116 7/8/1910 John Doe 1.20 160 Legislative Control of State Normal Schools Type No. 3 Type No. 3 seems complete, but it is found upon more care- ful examination to show very little about where the money really goes. First, there is a general statement of balances, the amount received from the state treasurer, the total disburse- ments and the final balances. These are given under ten differ- ent headings with no final summary. Here again one must do considerable adding to find the grand total of receipts and expenditures. To find the expenditure for any one thing would require a great amount of time. The disbursements for salaries of officers and teachers are clear, yet nothing is given to indicate the service that each performs. Disbursements for Salaries of Officers and Teachers John Doe $7,759.00 (Names of all employees follow) For Science Appliance and Supplies Jan. 1, 1911. Balance on hand $ .68 Received from state treasurer 6,115.00 Disbursements 6,155.58 Dec. 31, 1913. Balance due treasurer _ 39.90 (Same general statement for ten items) Type No. 4 Type No. 4 is a form of condensed report and is fairly clear. It is given in a report with other normal schools and there is a slight opportunity for comparison of expenditures, though no comparison is made. Receipts (Statement of income from several different sources) Classified Expenditures Current expenses: 1910-11 1911-12 Salaries $12,598.11 $51,963.50 Total (Other items as furniture, telephone, etc.) Type No. 5 Type No. 5 shows a feature not shown by the others re- ferred to in that it gives the number of pupils enrolled. An opportunity is thereby given for a per capita cost calculation, Type Reports 161 but the report does not attempt such calculation. The receipts and expenditures are given in such a condensed form that the tables are practically worthless and furnish little information valuable to anyone. !*;•:■>••-■ Enrollment regular session — First year — Second year — etc. " Summer Session. " " " " " Receipts, (State Appropriations) 1910-11 1911-12 Eeceived from state $39,000 $51,000 Expenditures, (State Appropriations) Support and maintenance, salaries $25,400 $36,693 Salaries of teachers of indus. subjects 4,050 3,000 Books, apparatus, equipment, repairs, and improvements 3,000 3,000 Type No. 6 Type No. 6 shows in detail the receipts of the school under date of each receipt, number, of whom received, amount, and total. The checks for each expenditure are listed as in Type 2, with the addition of the object for which the check was given. This information should exist in the office of the board, but it is questionable whether it should have the space in the report. No advantage is taken of the opportunity the data fur- nish for statements of unit costs. Receipts August 19, 1910 995 Interest on land grant....$12,083.33 (All receipts follow in like form) Expenditures July 29, 1910 11631 John Doe.-.extra labor $91.14 Type No. 7 Type No. 7 gives a report on eight schools for a biennium. Each school is listed separately, the students are classified ac- cording to kind and grade, and the number of graduates given for each school year. It is fairly condensed for the receipts and expenditures are given including teachers and employees. In the report, however, nothing is made of the opportunity for comparisons. 162 Legislative Control of State Normal Schools Enrollment School 381 normal 44 grammar, etc. (eight schools are listed) Graduates ,.„. 212 total (detail classification) (eight other schools listed) Receipts Interest on land certificates $61.04 $70.55 Expenditures Salaries, etc _ $41,270.00 etc. Type No. 8 The report from which Type No. 8 was taken contains the financial statements of six normal schools and twenty-eight other state institutions. The income is given, the enrollment, pay roll of teachers and employees, and a classification of ex- penditures as shown by the table. The distinctive feature of this type is the attempt made to calculate the per capita ex- penditure, and to furnish a basis for comparison among the schools of the state. This type omits some of the good fea- tures found in Type No. 7. Biennial Report of State Board Per Per For What Expended 1911 capita 1912 capita Salaries regular _...$12,670.65 $58.12 $12,613.33 $54.84 Salaries, extra _ 341.71 1.57 519.24 2.26 Labor 49.57 .23 164.45 .71 Traveling expenses 64.60 .29 146.07 .63 (fifty-five other items follow) From the many reports which the writer has collected and ex- amined, of which the eight described are types, it is evident that these reports are far from being clear to the average business man to say nothing of the average citizen. As a rule, they give but little information concerning the efficiency of the school, the exact expenditures, and show less regarding the returns which the public is getting upon its investment. There is no uniform- ity among the states, and in only a few cases is there uniform- ity among the schools of the same state. These deficiencies make it difficult for the public to draw safe conclusions as to real needs of state normal schools or their actual value. APPENDIX B COMPARATIVE COSTS When the writer first conceived the idea of making a study of normal schools it was with reference to unit costs and other problems relating to finances. Only a little thought and inves- tigation were given to that until it became evident that such a study was not possible because the proper data could not be secured ; upon further investigation it was found that such data did not exist to any great extent in these institutions. Scraps of what seemed to be comparable upon first examination were col- lected, but these proved to be useless for all practical purposes. It was readily seen that the chief difficulty in dealing with what was available was found to be the lack of classification. For example, "athletics" and "gymnasium" are by no means synonymous terms as a title for all items of expenditure relat- ing to this school activity. Items given in a report under the title of "gymnasium" may be for repairs and improvements on the gymnasium, for equipment, for athletic exercises in the gymnasium, or for two or more of these. Likewise, "salaries" is not synonymous with "faculty"; "salaries" probably in- cludes all who were employed in the institution, but there was nothing in these reports to assure one of this. Item "expendi- tures for departments" cannot be interpreted by any one not familiar with the particular institution for which the report was made; also, "improvements" is such a general title that almost any kind of expenditure may be classified under it. "Postage," "printing," and "advertising" may be for the ex- ecutive office, for the catalog, or for general advertising. Under "miscellaneous," "incidental" and "special" all manner of ex- penditures are found. Such titles for expenditures are abso- lutely unintelligible to the public; it may be impossible to get along without such a title in a report, yet if the total expendi- tures thus classified amount to a large sum it should be taken as evidence of careless accounting. 164 Legislative Control of State Normal Schools The exhibits given in this Appendix are not given for any value they have in themselves, but merely to indicate a few things which might be done if statistics were available, as sug- gested in Chapter IV of this study. The writer has had to do a great deal of reclassifying and interpreting in order to make the items seem at all comparable. If the statistics were accurate, and the results were as they are shown to be by these tables, it is safe to say that in many instances normal school administrators would find more effi- cient ways of conducting their institutions. For example, in one state the median expenditure per capita for salaries, wages, and labor, is $134.85, while in another state it is $60.71, or less than half the former sum. (Exhibit I) A still greater difference is seen between these two states in the total expenditures per capita. A marked similarity holds among the different schools of the same state, yet in some cases there is sufficient variability to require investigation by those in charge. In Exhibit III school "West Liberty" is $15.08 above the state's median ex- penditure for salaries, wages and labor, while school "Marshall" is $15.03 below the median. The explanation for this is that West Liberty is a school with fair equipment, but has a small attendance due to its location ; while Marshall has a much larger enrollment. Question: Can a state afford to continue small schools in isolated communities? In Exhibit IV, however, it is found that even this small school falls below the median for the three states in respect to this item of expenditure. The difference in the state medians, and the large variability of expenditures among the schools, cannot all be explained upon the point of enrollment. Some normals are cbntent to be schools for the training of elementary teachers; others are largely sec- ondary schools with courses paralleling the high school courses, and giving very little professional training; still others are training high school teachers, while some are trying to rival col- leges and state universities. All these ideals affect the cost of maintenance, and must be known before a fair comparison of expenditures can be made. Exhibit V is a brief outline of the work of the Joint Board of Higher Curricula of the State of Washington. This board, as Comparative Costs 165 EXHIBIT I EXPENDITURES PER CAPITA Salaries Wages and Labor Fur- nish- ings Heat Light and Power Rep'rs and Im- prove- ments Gr'ds Sup- plies Norm'l School Sup- plies Tr'g School Sup- plies Office Misc. Total Expense $135.33 180.03 130.39 166.63 177.92 203..09 121.58 134.38 127.10 128.06 134.85 S 5.84 4.03 3.33 3.43 4.46 6.25 3.20 4.31 13.76 .88 4.17 $21.44 18.80 14.90 17.03 6.99 34.70 7.81 22.34 8.39 5.03 15.96 S3. 33 20.26 17.45 57.88 6.45 28.70 7.99 17.77 16.04 1.78 16.74 $ .78 2.69 1.48 1.40 1.93 3.35 1.37 .57 1.61 $ 7.30 7.38 9.19 9.39 13.31 13.38 8.79 12.81 13.03 3.05 9.29 $ 2.20 5.52 .49 .41 9.46 4.01 5.04 1.08 .72 $ 3.62 3.31 3.49 4.20 3.03 3.74 3.72 4.57 7.73 2.30 3.67 $ 2.68 4.74 2.81 6.31 6.39 8.43 5.68 4.00 7.00 3.48 5.20 $194.50 270 75 229 87 308 23 135 58 Westneld.. _ 202 86 195 77 143.58 2.20 199 31 60.09 61.34 51.99 75.79 67.31 45.68 60.71 10.05 .66 .49 .09 .16 .45 .47 5.40 1.16 1.96 3.32 4.06 3.17 3.24 6.28 6.44 .22 .63 .21 2..49 1.56 3.24 3.54 2.20 .40 1.69 .69 1.94 1.07 1.49 1.32 .81 1.07 1.34 1.19 6.21 3.22 8.16 3.61 3.86 5.43 4.64 99 73 72.36 80.30 87.80 100.32 62 72 84.05 81.46 60.80 75.60 80.28 74.04 90.46 66.30 83.32 77.94 2.53 4.36 .73 1.69 1.16 .77 3.71 4.89 2.11 9.71 3.72 5.66 7.51 4.11 7.25 4.23 6.37 6.01 5.06 1.00 1.62 1.21 1.27 2.36 1.29 2.47 1.49 14.67 1.09 16.85 9.67 1.04 .56 14.19 .39 5.38 3.13 .96 2.34 2.37 2.82 3.59 2.77 1.40 2.57 .69 .70 .60 .44 .60 .52 .22 .39 .52 9.23 6.80 6.16 6.28 3.54 11.54 6.90 7.23 6.35 86.34 61.60 77.23 Platteville. 81.23 92.90 117.96 Superior. _ Whitewater. Median _ 132.26 113.62 89.62 EXHIBIT II MEDIANS FOR THE THREE STATES REPRESENTERFD BY 24 SCHOOLS Salaries Wages and Labor Fur- nishings Heat Light Power Repairs and Improve- ments Grounds Sup- plies Normal School Sup- plies Training School Supplies Offioe Miscel Total $82.39 $3.26 $6.68 $3.77 $1.48 $3.18 $2.20 $1.33 $6.18 $115.75 166 Legislative Control of State Normal Schools EXHIBIT III SHOWING EACH SCHOOL'S DEVIATION FROM THE MEDIAN OF THE STATE IN WHICH IT IS LOCATED Salaries and Labor Fur- nish- ings Heat Light and Power Rep'rs and Im- prove- ments Gr'ds Sup- plies Norm'I School Sup- plies Tr'g School Sup- plies Office Misc. Total Expense Bridgewater... Fitcnburg.. Framingham.- Hyannis... Lowell.. North Adams... Salem... Westfield... Worcester.. Normal Art.. Athens... Shepherdstown... Glenville.. West Liberty- Fairmont. Marshall.. La Crosse... Milwaukee... Oshkosh.. Platteville. River Falls Stevens Point. Superior. Whitewater. _ 0.58 45.18 4.46 21.78 43.07 68.24 13.27 .47 7.75 6.79 .62 .63 8.72 15.08 6.60 15.03 3.52 17.14 2.34 2.34 3.90 12.52 11.64 5 $ 1.67 .14 .83 .74 .29 .08 .97 .14 '.59 9.58 .19 .02 .38 .31 .02 .42 2.25 1 .42 .95 1.34 1 2.78 t 5.48 2.48 1.06 1.07 8.97 18.74 8.15 6.38 7.57 10.93 2.16 2.08 1.28 .18 .82 .07 3.70 2.29 .35 1.50 1.90 1.24 1.78 8 3.41 3.52 .71 41.14 10.29 11.96 8.75 1. .70 14.96 4.72 4.88 1.34 .93 1.35 3.61 .45 .17 .24 .18 .91 .16 1.02 t .71 1.20 .01 .00 .45 1 .12 .92 .12 4.20 11.47 4.29 4.34 4.82 8.81 4.99 8 1.99 1.91 .10 .10 4.02 4 .50 3.42 3.74 6.24 1.30 1 1.54 .25 1.25 .56 1.61 .23 .20 .25 1.02 .20 1.16 t .00 3.31 1.79 1.79 7.27 1.81 2.85 1.12 1.52 .05 3.6 .18 .53 .64 .07 .05 .90 4.06 1 .12 .30 .13 .38 .12 .15 .17 .18 .08 .00 .14 .00 .30 .13 1.60 1.44 3.52 ..99 .78 .79 2.38 .05 .72 .55 3.31 4..69 .05 .43 8 4.72 48.72 14.56 70.94 30.56 108.92 53.75 3.53 3.54 55.73 15.68 5.60 3.75 3.75 16.27 23.33 21.65 28.02 12.39 8.39 3.28 28..28 42.64 24.00 EXHIBIT IV SHOWING EACH SCHOOL'S DEVIATION FROM THE MEDIAN OF THE THREE STATES Salaries Wages and Labor Fur- nish- ings Heat Light and Power Rep'rs and Im- prove- ments Gr'ds Sup- plies Norm'] School Sup- plies Tr'g School Sup- plies Office Misc. Total Expense S 52.94 97.64 48.00 84.24 95.53 120.70 39.19 51.99 44.71 45.67 22.30 21.05 30.40 6.30 15.08 36.71 .93 21.59 6.79 2.11 8.35 3.07 16.09 .93 (2.58 .77 .07 .17 1.20 2.99 .06 1.05 10.70 2.38 6.79 2.60 2.77 3.17 3.10 2.81 .73 1.10 2.73 1.57 2.10 2.49 .45 1.63 $14.76 12.12 8.22 10.35 .31 28.02 1.13 12.66 1.71 1.65 1.28 5.52 4.72 3.36 2.62 3.51 3.93 2.96 1.02 .83 2.57 .57 2.45 .31 $ 9.56 16.49 13.48 54.11 2.68 24.92 4.22 14.00 12.27 1.99 2.51 2.67 3.55 3.14 3.56 1.28 1.29 2.77 2.15 2.56 2.50 1.41 2.48 1.30 S .70 1.21 .00 .01 .45 1.87 .11 .91 .13 S 4.12 4.20 6.01 6.21 10.31 13.20 5.61 9.63 12.85 .13 .06 .36 .98 2.78 1.49 2.49 .05 2.22 .84 .81 .36 .41 .41 1.77 S .00 3.31 1.91 1.79 7.26 1.81 2.84 1.12 1.48 % 2.29 1.98 2.16 2.87 1.70 2.41 2.39 3.24 6.40 .97 .26 .16 .01 .52 .26 .01 .64 .63 .70 .89 .67 .81 1.11 .94 S 3.50 1.44 3.37 .13 .21 2.45 .50 2.11 1.02 2.70 .06 2.98 1.98 2.53 2.32 .75 3.05 .62 .05 _10 2.54 5.36 .72 1.10 S 78 84 132 28 154.50 114.12 North Adams. Salem. WeBtfield. 192.43 19.88 87.11 80.02 27.83 16.02 37.39 35.45 West Liberty. 27.95 15.43 13.19 .39 15.37 8.19 .40 .98 12.71 1.09 53.03 29.41 53.15 38.52 Platteville. 34.52 River Falls _ 22.85 2.25 16.51 Whitewater. 2.13 Comparative Costs 167 may be seen in graph "Washington," page 76, is made up of the president of the University of "Washington, two regents of that university, the president of the State College of Washing- ton, two regents of the college, the president of one of the state normal schools, and one trustee from each of the boards of trustees of the other two normal schools. The purpose of the Joint Board is to consider matters of efficiency and economy in the administration of the institutions represented. This is by far the most significant report found in this investigation, and is recommended to boards controlling state normal schools and other teacher training agencies. 2 The statistical reports are given under the following headings : I. Income, receipts and expenditures. (For each institution concerned.) Table 1. Sources of income. Table 2. Summary of receipts and expenditures. II. General and claass census enrollments. Table 3. General census enrollments. Table 4. Class census enrollment. III. Cost of instruction — regular academic year. Table 5. Instructional cost distributed to departments. Table 6. Student clock hour load. Table 7. Cost per student clock hour. Table 8. Yearly cost per major student. IV. Cost of instruction — summer session. Table 9. Regular academic year and summer session compared. V. Classified expenditures. Table 10. Individual institutions, on pages 168 and 169 of this study. 'The First Biennial Report of the Joint Board of Higher Curricula for the State of Washington. 168 Legislative Control of State Normal Schools o o W o S § is SB W s Em o 3 SB O s H ■< BS s o o 5? OS H H .sa OS o SB 03 .s| ofl q»onn Eh SB (3 a Q MHMOONitl^fflONTfNHCittOWCilNi-itOOiflOOOO) u:TKODNiQ^-<_ tNeocoi-tio HNHPJN oo»ra **00 ON 0_CO_ NtM 00 rH oscq ioeo CQIO COCO OO CO Oi-l to CO n co co to ih to io >n eoooTfcoo^Hi-HTf U5 0_0\iO_U3 W *C ■<** NOCSlcOKi W00MNC 3P 0 CM 0O iO -*< O OO to O O0 ■ a S-2.9-S »OCO OS_W US'* tooo tHrH O5C0 o-* Oi_00 COCN rt J> O ra ! 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CJ -* rooNco t~-W«OlO i-l CO 00 CO o la s ■Son 02 OS OS iooo tO!C w O OOCOCM o iccofia CO CI 00 !"*lO OOJ o; r- iO CO OOCOt'-CO SlfiOfi CO CO CO CM w Oi eo oo eo oc t>- t- HO«d 00 CO-* t-< n^'o r^ o o ►J o lOO CO ^ 00 «- Oi »o CM Oi CI i-i a % Oi-100-*0"'*'*00 1M NaiOCOCBN^'CON :ioco a t— ~- CO t- 1*5 CO O O M fl!10 1(iHC»NMN!P :oor^ m coiocji-HOiooaio CO wo^oinooowih ii-ir-- Q P H ■S'H-S e S5oW MNt*. CO ■35M CO OQ omrHMiooxoij* (N NioomiOf'd'Ne if-«co O O o 4 w* cot- CO ^H rtrtrtN««H jOO'* CO WD r~ (0 "S OWOOOiOKStDN CO ooocNcor^iocNco : co cm i O a t»«01WHt-00 oo KSiHC^i-iOWt^CO I^hm 1 CM hJ s-s Mt^M^H^-^HTjiio lO HNtoooHt-HHrt iooo O ca O0 f O M 00 t- Oi 'J' W3 CCr-«)SMOirtiOO !00- ■«! «s t^O»_M » t* ^H oa_o ^* iosco O P Q o© j i i •» ■< pj < a. S o o 02 1 S5 c B ■jS 5 Ah c > • s s I 1 1 is a. 1 1 to •< i p .3 •5 t c a 1 c a c J ■£ ■U j j .2 b c a. * P B £ 1 p 1 c J3 > p -o c 1 td J 1 c c c 1 c a. ■& e fc a. -a a g J3 c ■r £ .s 1 > 3 t c "e '5 1 p s a s s c c 1 } O c £ c 1 c •s a, 1 > a 'j c I 1 i*C ; d § !|| E3 o a O-rt *E PhKK "c c bj c !s I s c 1 1 VITA The author of this dissertation, Lawrence Benjamin Hill, was born November 16, 1876 at McKim, Tyler County, "West Virginia. Academic Training: Rural school 1884 to 1894 ; State Normal School at Hunting- ton, W. Va., 1897 to 1900, diploma; West Virginia Uni- versity 1903 to 1906 , A. B. ; Scholar, University of Nebras- ka, 1906-07, A. M.; Scholar, Teachers College Columbia University, 1907-08; Fellow, Teachers College, Columbia University, 1912-13 ; attended Teachers College, Columbia University, summer session, 1920. Professional Experience : Taught rural school 1894-98; Principal, ward city school, 1898-99 ; Superintendent, city schools, 1900-1903 ; Principal, Tyler County High School, 1908-1912 ; President, State Nor- mal School, Athens, W. Va., 1913-18 ; Associate Professor of Education, West Virginia University, 1918-20; Professor of Education, West Virginia University, 1920 —