Columbia Ulnfversiti^ 
 
 Contributions to Ebucation 
 
 ITeacbers College Series 
 
5Jeui ^ark 
 Hatt QJollgge of Agrttulture 
 
 At (Jnrncll MnincrattH 
 3tl(aca, 5J. 5. 
 
 Hibratg 
 
LB 1607 st""*" ""'""■"•v '-"'"'■y 
 
 Mills I f ^*' '•''"* <" '■"'■al high schools i 
 
 1924 012 986 505 
 
Cornell University 
 Library 
 
 The original of tiiis book is in 
 tine Cornell University Library. 
 
 There are no known copyright restrictions in 
 the United States on the use of the text. 
 
 http://www.archive.org/details/cu31924012986505 
 
THE LEGAL STATUS 
 
 OF 
 
 RURAL HIGH SCHOOLS 
 
 IN THE 
 
 UNITED STATES 
 
 With Special Reference to the Methods Employed in 
 
 Extending State Aid to Secondary Education 
 
 in Rural Communities 
 
 BY 
 
 Edwin R. Snyder, Ph. D. 
 
 TEACHERS COLLEGE COLUMBIA UNIVERSITY, 
 CONTRIBUTIONS TO EDUCATION NO. 24 
 
 PUBLISHED BY 
 
 JSeatlftva (Halitgf, (Salntnbfa Xninnrnttg 
 
 NEW YORK CITY 
 
 1909 
 
 to , 
 
Copyright, 1909, 
 By EDWIN R. SNYDER 
 
 / 
 
 fid 
 
 PBEBS OF 
 
 BBANDOW PBINTINQ COUFANY 
 
 ^ALBANY. N. T. 
 
CONTENTS 
 
 The figures given below refer to pages. 
 
 CHAPTER I 
 
 THE PROBLEM AND THE METHOD EMPLOYED IN ITS SOLUTION 
 
 The purpose of the work. The problems involved. The methods 
 employed 3-5. 
 
 CHAPTER II 
 
 THE EXTENSION OP HIGH SCHOOL PRIVILEGES A PUBLIC NECESSITY 
 
 The general status of education in the United States. The break in our 
 system at the end of the elementary school is not fundamental. 
 A more thorough training necessary to meet the demands of the 
 times. The influence of the high school upon social and educa- 
 tional conditions in rural communities. The rural high school 
 as an institution to prepare teachers 6-13. 
 
 CHAPTER III 
 
 STATE AID TO RURAL HIGH SCHOOLS A PUBLIC NEED AND DUTY 
 
 The state the most comprehensive unit for the administration and sup- 
 port of public education. One function of the state to raise the 
 general, standard of intelligence. The state can aid elementary 
 education by securing establishment of high schools. State may 
 only hinder community class differentiation through education. 
 Secondary education necessary to improve agricultural conditions. 
 A liberal training necessary for country youth. State only can 
 equalize secondary educational opportunities. A wider field for 
 the selection of leadership essential. State aid necessary to the 
 poorer districts. The support of secondary and higher education 
 has always been a state policy. Education cannot be pauperized. 
 Wealth accumulated in certain regions may represent state resources 
 14-25- 
 
 CHAPTER IV 
 
 UNITS OF ORGANIZATION AND COURSES OF STUDY FOR RURAL HIGH SCHOOLS 
 
 The evolution of the district high school. The union of districts, — 
 advantages of same. The township unit of organization. The 
 union of townships. The county unit of organization. Academies 
 as secondary schools. Normal schools as secondary institutions. 
 Courses of study for rural high schools, — types of, in Florida, Wis- 
 consin, and Massachusetts 26-36. 
 
iv Contents 
 
 CHAPTER V 
 
 STATE AID TO HIGH SCHOOLS 
 
 Maine, — 37-40: Early aid to high schools, 37. Early status of high 
 schools, 38. Law suspended and reinstated, 38. Later legislation 
 and present legal status, 38. Growth and present status of high 
 schools, 39. Special subsidies to academies, 40. 
 
 Wisconsin, — 41-49: Early aid to high schools, 41. Provision for 
 supervision, 42. Aid to township high schools, 42. Aid to manual 
 training departments, 43. Change of law in aid of township high 
 schools, 44. Local community may provide tuition, 44. Provision 
 for aid to graded schools, 45. Consolidation and free transporta- 
 tion provided for, 47. State aid to county agricultural schools, 47. 
 Development and status of rural high schools, 48. 
 
 Minnesota, — 49-55 : Early aid to high schools, 49. Inspection pro- 
 vided for, 50. Aid to graded schools, 52. Increases in amount of 
 subsidy, 54. Special aid for normal departments, 55. Consolida- 
 tion and free transportation provided for, 55. 
 
 CHAPTER VI 
 
 STATE AID TO HIGH SCHOOLS 
 
 North Dakota, — 56-58: Classification of high schools, 56. State aid 
 to high schools, 56. Present status of rural high schools, 57. 
 
 Pennsylvania, — 58-60: Aid to high schools, 58. Defects of the act, 
 59. Rural high school statistics, 59. 
 
 Florida, — 60-61: State aid to high schools, 60. Influence of act, 61. 
 Consolidation and transportation, 61. 
 
 Massachusetts, — 61-66: Compulsory local support, 61. Historical 
 development of high schools and high school legislation, 62—64. 
 State aid to rural secondary education by subsidy and reimbursed 
 tuitions, 65. Only two teacher schools may receive aid, 65. Develop- 
 ment and status of secondary education, 66. 
 
 CHAPTER VII 
 
 states that use other than the direct subsidy plan in 
 the distribution op state aid to high schools 
 
 California, — 67-73: Early legislation and growth of high schools, 67. 
 The part that the normal schools have played in secondary educa- 
 tion, 68. "The grammar school course," and state aid to the same, 
 69. Provision for establishment of county high schools, 70. Growth 
 of high schools, 1885 to 1902, 70. Constitutional change enabling 
 state to aid secondary education, 70. State aid to high schools, 70. 
 Result of act, 73. 
 
 New York, — 73-78: State aid to union free high schools, 74. The 
 literature fund and its apportionment, 74. Aid from the common 
 school fund, 74. State provides tuition, 75. Special aid for normal 
 departments, 75. History of development of literature fund, 75 
 
Contents v 
 
 Development of high schools, 76. Apportionment of funds to 
 secondary schools, 76. Apportionment for free tuition, 78. 
 
 Rhode Island, — 78-79: State aid to secondary education, 78. Con- 
 solidation and transportation of pupils, 79. 
 
 Washington, — 79-80: Special state aid to high schools, 79. Some 
 effects of the act, 80. 
 
 CHAPTER VIII 
 
 STATES THAT DIRECTLY OR INDIRECTLY PAY THE TUITION OF 
 CERTAIN HIGH SCHOOL PUPILS 
 
 New Hampshire, — 81-82: The state educational fund and its- dis- 
 tribution, 81. The provision for reimbursing tuitions, 82. 
 
 Connecticut, — 82-85: The provision for reimbursing tuitions, 82-83. 
 Reimbursed free transportation, 83. Aid to libraries, 83. Statistics 
 of tuitions reimbursed, 84. Status of secondary education, 84. 
 
 Delaware, — 85 : Aid to all schools upon teacher basis. The provision 
 for state payment of tuitions. 
 
 Vermont, — 86-88: Summary of secondary educational opportunities 
 offered, 86. The reimbursement of tuitions, 87. Tuition statis- 
 tics, 87. 
 
 CHAPTER IX 
 
 STATES THAT LEGALIZE THE LOCAL PAYMENT OF HIGH SCHOOL TUITION 
 
 Indiana, — 89-91 : History of township high schools, 89. Free tuition, 
 
 consolidation and free transportation, 90. Provision for county 
 
 high schools, 90. High school statistics, 91. 
 Ohio, — 91-94: History of township high schools, 91. Free tuition, 
 
 92. Free transportation, 93. Development and status of high 
 
 schools, 93. The state fund, 94. 
 Kansas, — 94-95 '■ County high schools, 94. Free tuition in counties, 
 
 95. Status of county high schools, 95. 
 Nebraska, — 96-98: Free tuition, 96. Provision for joint district high 
 
 schools, 97. State aid to manual training department, 97. Status 
 
 of secondary education, 98. 
 Michigan, — 98-100 : Union or graded schools, 98. Free tuition, 99. 
 
 State aid to normal training schools, 100. County industrial schools, 
 
 100. 
 Idaho, — 100. 
 Oregon, — loo-ioi. 
 Utah, — loi. 
 
 CHAPTER X 
 
 Illinois, — 102-105: Township high schools, 102. School funds, 103, 
 Scholarships in normal schools, 104. Status of high schools, 105. 
 
 Iowa, — 105,106: Legal status, condition of secondary education, 
 township high schools, consolidation and transportation. 
 
 New Jersey, — 106-109: No special provision for high schools, 106. 
 Early development of system, 106. The state fund and its dis- 
 tribution, 107. County compelled to provide high schools, 109. 
 
vi Contents 
 
 Colorado, — log-iio: Legal status, school funds, status in state. 
 
 South Dakota, — iio-iii. 
 
 Wyoming, — iii. 
 
 Arizona, — iii. 
 
 Missouri, — 111-112: Part of teacher's fund may be applied to sec- 
 ondary education. Classification and inspection. Consolidation. 
 Present status. 
 
 Montana, — 112-113. 
 
 Nevada, — 113. 
 
 New Mexico, — 113. 
 
 CHAPTER XI 
 
 the present legal status op high schools in the south 
 Maryland, — 114-116: County high schools. State aid to manual 
 
 training and industrial schools. State aid to high schools giving 
 
 commercial courses. Scholarships. Counties receiving aid upon 
 
 account of manual and industrial courses. 
 Virginia, — 116-117: State aid. Inspection. Aid for normal training 
 
 departnients. Aid for industrial education. 
 North Carolina, — 11 7-1 18: State aid to high schools. Tuitions 
 
 reimbursed. 
 South Carolina, — 118-120: State aid to high schools. Inspection and 
 
 classification. Free tuition. Effect of act. 
 Alabama, — 120-121: State aid to county high schools. 
 Tennessee, — 121-122: County high schools. Free tuition. 
 Texas, — 122 : High schools a part of general system. 
 West Virginia, — 122: High schools supported locally. 
 Kentucky, — 122-123: The graded schools. 
 Georgia, — 123: Locally supported. 
 Louisiana, — 123: Locally supported. 
 Mississippi, — 123. 
 
 Arkansas, — 123 : No special provision. 
 Oklahoma, — 123 : District and county. 
 
 CHAPTER XII 
 
 SOME high school STATISTICS AND THEIR PROBABLE MEANING 
 
 Purpose, source, reliability, and arrangement of statistics, 124-127. 
 
 Maine, Massachusetts and New Jersey, 128-129. 
 
 California, Colorado and Washington, 1 30-131. 
 
 Connecticut, Vermont, and New Hampshire, 132-133. Michigan, Wis- 
 consin and Minnesota, 134-135. Ohio, Indiana and Illinois, 136- 
 137. Iowa, Missouri and Texas, 138-139. Kansas, Nebraska and 
 Rhode Island, 140-141. 
 
 Limiting factors that enter into growth of high schools and high school 
 opportunities, 142-144. Steps in the evolution of the high school, 
 
 145-147- 
 Interpretation and graphic presentation of statistics for: Maine, 147; 
 Massachusetts, 148; New Jersey, 151; California, 154; Colorado, 156; 
 
Contents vii 
 
 Washington, 158; Connecticut, 161; Vermont, 163; New Hamp- 
 shire, 166; Michigan, 168; Wisconsin, 170; Minnesota, 171; Ohio, 
 174; Indiana, 176; Illinois, 178; Iowa, 179; Missouri, 181; Texas, 
 183; Kansas, 184; Nebraska, 186; Rhode Island, 188. 
 The general development of secondary education in above states, 188. 
 Statistical summary for twenty states, 191. Comparison of states 
 that provided subsidies with those that provided no state aid, 190. 
 Comparison of states that reimbursed tuitions with others, 193. 
 Graphic presentation of development of secondary education in 
 the two groups, 194. 
 
 CHAPTER XIII 
 
 STATE AID BY GRANTING SUBSIDIES AND BY REIMBURSING TUITIONS 
 
 Purpose of the chapter. The Massachusetts act. A local school has 
 some advantages. These may be overcome by financial interests. 
 Detailed analysis of Table I. Statistics, loo-ioi. Present law 
 granting state subsidy only partly affective. Inequalities worked 
 by tuition law. Comparison of averages in two tables. Comparison 
 with sixteen towns. Comparison with seven towns. Comparison 
 with three towns. Condition not a recent one. General proposi- 
 tions demonstrated by statistics for Massachusetts. Does state 
 desire to encourage the smaller high school? 
 
 Legal provision for reimbursement of tuition and transportation expen- 
 ditures in Connecticut. Aim of presentation of statistics. Basis 
 of assembling statistics. Statistics of high schools expending less 
 than $1,500 for maintenance. Statistics of fourteen towns that 
 sent twenty or more pupils to non-local schools. Comparison of 
 statistics in large and small groups, and in individual cases. Sta- 
 tistics prove that the law has worked injustice and has only been 
 partially effective 197-2 10. 
 
 CHAPTER XIV 
 
 THE VARIOUS METHODS EMPLOYED IN AID OF SECONDARY EDUCATION IN 
 RURAL COMMUNITIES 
 
 General methods employed. State aid in the following states: Min- 
 nesota, California, Wisconsin, North Dakota, Pennsylvania, Wash- 
 ington, Florida, Virginia, South Carolina, Alabama, New Hampshire, 
 Vermont, Delaware, Connecticut, Maine, Massachusetts, New York, 
 Rhode Island, North Carolina. The results of the working of the 
 different schemes. The aim of the state in providing aid. A local 
 school will increase the number of secondary pupils 60 to 75 per 
 cent. The conditions under which each scheme of providing state 
 aid should be put into operation. The factors which must be taken 
 into consideration in apportioning state aid. A tentative scheme 
 for the distribution of state aid to secondary education in rural 
 communities 21 1-225. 
 
CHAPTER 
 
 THE PROBLEM AND THE METHOD EMPLOYED IN ITS 
 SOLUTION 
 
 The main purpose of this work is to present the development 
 and the present legal status of rural high schools in the United 
 States, and the influence of legislation upon the number and 
 location of new schools, particularly in so far as the same may 
 have been influenced by the extension of state aid in certain of 
 the commonwealths. The first problem of the study was to estab- 
 lish the legal status of these schools in each of the various states 
 of the Union. Since a part of the task set was to study their 
 development in relation to the laws providing for their establish- 
 ment and maintenance, especially where such maintenance was 
 partially provided for by special state aid, it became necessary 
 to trace the historical development of such legislation as bore 
 directly or indirectly upon the subject. The second problem 
 was to establish the workings and results of these laws as inter- 
 preted and applied by the various educational authorities of these 
 states. The third problem was to measure the development of 
 the rural high schools in each of the states, as influenced by the 
 legal status provided at the various periods of this development. 
 The fourth problem was to measure the relative influence of 
 the different methods of extending state aid, employed by each 
 of the states, and to compare the results obtained by partial 
 state, versus entire local support. The final problem was to 
 evolve from the various schemes already employed, a plan based 
 upon actual experience whereby state aid for the support of 
 high schools might be most equitably and efficiently extended to 
 the poorer districts of a given commonwealth. 
 
 In working up the historical development of the legislation, 
 all available school laws for each state were consulted, and where 
 gaps in the series occurred the successive state reports were 
 used to discover, if possible, any intervening legislative acts 
 bearing upon the problem. In case there was evidence of such 
 legislation having occurred, and no adequate presentation was 
 given in these reports^ the Session Laws and Political Codes of 
 these states were consulted. The usual method pursued was that 
 
4 The Problem and the Method Employed in its Solution 
 
 of first consulting the latest School Laws available and then 
 running back over the series noting the dates of any changes 
 occurring which in any way affected the present legal status of 
 these schools. All acts bearing indirectly as well as those bearing 
 directly upon the subject were noted and are presented in the 
 main body of the study. ^ 
 
 After the development of the legislatiori had been secured, 
 each of the state reports for the whole period was carefully 
 worked over in order to establish where possible the interpre- 
 tation of these laws, their immediate and particular results, their 
 general influence upon the establishment and refinement of rural 
 high schools, and their effect upon the enrollment of rural secon- 
 dary pupils in the state. In many cases, and particularly in the 
 earlier development of these schools, it was not possible to sepa- 
 rate the purely rural from the city items and, as a result, it was 
 sometimes necessary to report them for the state as a whole. 
 A clear cut division here would have certainly been desirable, 
 but such a separation is not in all matters entirely essential, 
 since after each of the cities has established a high school any 
 additional schools established will, upon the whole, measure the 
 extension of secondary educational opportunities in the state. 
 
 The second part of the formal presentation of the study^ con- 
 sists of a series of statistics and their interpretation ; these figures 
 show the status and development of city and rural high schools 
 in twenty states, for the years 1897 to 1906 inclusive. In addi- 
 tion to the above they show in some instances the influence of 
 special acts of legislation as presented elsewhere in the study. 
 They also show very clearly the relative influence of partial 
 state aid, and entire local support, upon the status and develop- 
 ment of secondary education in the country. The last section 
 of this part of the work is a statistical study showing the com- 
 parative workings of the laws providing state aid to secondary 
 education in Massachusetts and Connecticut. 
 
 The last chapter presents the views of the writer, largely based 
 upon the formal study, in regard to the most adequate and just 
 methods of equalizing the burdens of secondary education in 
 the state. 
 
 ' Chapters V. to XI. inclusive 
 ' Chapters XII. and XIII. 
 
The Problem and the Method Employed in its Solution 5 
 
 In reading over the great mass of material presented in the 
 various reports of the state superintendents upon the subject of 
 rural high schools much material was accumulated upon the theo- 
 retic arguments advanced for and against the extension of 
 secondary educational opportunities in the various states, and 
 particularly upon the question as to what attitude the state 
 should take in regard to the matter of extending aid to the 
 poorer communities. This material was so widely scattered how- 
 ever, and the arguments were so often repeated that any organiz- 
 ation of the material required its complete recasting. In addition 
 to the above much material was presented relating to the influence 
 of the establishment of rural high schools in certain communities 
 and particularly as they affected the lower schools. This matter 
 was of course usually presented in the form of arbitrary state- 
 ments sometimes with and sometimes without the facts upon 
 which they were based. These statements, however, came, as 
 a rule, from men actually familiar with the situation presented, 
 and are therefore entitled to a large amount of consideration. All 
 of the above matter has been recast and combined with certain 
 personal observations and opinions, and the whole is presented in 
 the two following chapters. So far as the personal observations 
 are concerned they are based largely upon impressions received 
 in handling the great mass of material to be found in the state 
 reports. It is to be admitted that many statements made are still 
 largely matters of opinion, but they are presented with a full 
 consciousness of their character. The main excuse, if such is 
 necessary, for presenting this matter is, that new high schools 
 are largely established not upon the evidence of scientific fact, 
 but rather upon a consensus of opinion arrived at by public 
 discussion of the question. In addition to the above, the question 
 of the units of organization usually adopted in the establishment 
 and maintenance of rural high schools, together with a short 
 discussion of the curriculum generally found in them, is taken 
 up. No attempt is made in this chapter to go into the details 
 of administration in regard to either of the topics presented. 
 Many other important topics such as supervision and inspection 
 and the training and examination of teachers have been for the 
 want of time almost entirely neglected. 
 
CHAPTER II 
 
 THE EXTENSION OF HIGH SCHOOL PRIVILEGES A PUBLIC 
 
 NECESSITY 
 
 The battle for free public high schools has, in large part, been 
 fought and won in this country, though the extension of such 
 schools has not as yet been sufficient to enable all of the youth 
 of the land to take advantage of such opportunities as they may 
 offer. The evidence of this victory is to be found in the fact 
 that all of the cities of the country, and most of the towns with 
 a population to exceed two thousand five hundred inhabitants, 
 together with many smaller towns, villages, and thickly settled 
 rural districts have voluntarily taxed themselves to support free 
 public high schools. The most notable exception to this is to 
 be found in the South.^ 
 
 Since any extension of our system of secondary schools en- 
 tails to a greater or less degree, the same argumentative struggle 
 that every community, enjoying these privileges, has passed 
 through, it will be necessary to take up and briefly discuss the 
 advantages underlying the further extension of the system to 
 include a larger proportion of the rural districts. It is probably 
 safe to say that there are no valid theoretic reasons why the 
 educational opportunities, in a democracy, should not be extended 
 indefinitely. The only valid argument that may be raised against 
 such an extension of the system is that of inability upon the part 
 of the people to support this type of education. 
 
 The question as to whether each child should have an opportu- 
 nity to attend an elementary school has been settled for all time 
 in all regions in this country. There is not a state or territory 
 in the Union that does not either partly or wholly support such 
 a system by state or local taxation or by both. The standard of 
 quantity in opportunity has been almost universally advanced to 
 what is commonly known as the end of the grammar school, 
 and most of the states have advanced this standard until it em- 
 braces the high school. Many have included the university, but 
 a number of these have failed as yet to make adequate provision 
 
 » See Chapter XI. 
 
Extension of High School Privileges a Necessity 7 
 
 for a complete connecting link between these two institutions. 
 It may be maintained with some degree of truth that the elemen- 
 tary school exists upon the whole, for the purpose of educating 
 the masses, but the university certainly exists primarily for the 
 purpose of preparing leaders. This latter being the case it is 
 difficult to see the logic that would permit the state to fail to 
 provide the natural feeder to this higher institution. However 
 this may be, most of the states have approached the problem 
 from this end. Massachusetts, in her educational history, illus- 
 trates this best, though many of the Western States have in recent 
 years far surpassed her in the fostering and support of higher 
 education. In regard to secondary education she has until re- 
 cently largely confined herself to compelling the local establish- 
 ment and support of such institutions. On the other hand Minne- 
 sota has for many years given to each and every one of her 
 numerous high schools, large and small alike, a large bonus 
 direct from her state treasury. 
 
 There is no good logical reason why the universal support of 
 free education should cease at the end of our grammar schools. 
 The break in the system at this point is a mere incident of devel- 
 opment and is not based upon any forethought. This practice 
 of ending our so-called elementary course of education at the 
 end of eight years is the result of the meeting of the two ends 
 of the system. 
 
 As the professional schools have developed, due to a demand 
 for higher training in the professions, they have forced them- 
 selves into the institutions of higher learning, until they now 
 require at least two years of the time that was at one time de- 
 voted exclusively to college work. Thus approximately two 
 years of the old college course has been forced out of the curricu- 
 lum and this material combined with the upper end of the 
 grammar school of colonial days, in a rough way, constitutes 
 the material that largely makes up the curriculum of our sec- 
 ondary schools of to-day. To this must be added, however, a 
 number of scientific subjects that have found their place more 
 recently. Our present system of elementary schools, in so far 
 as the curriculum is concerned, is constituted of the remnants 
 of these old grammar schools and the primary schools of the 
 colonial period. To this material we have in all of the above 
 
8 Extension of High School Privileges a Necessity 
 
 institutions added much in the way of matter that is patent to 
 our new civilization and its demands. The two higher divisions 
 of our system have met the problem of an overcrowded curricu- 
 lum by dividing the material into elective courses. For the ele- 
 mentary school the problem remains as yet unsolved. 
 
 It therefore appears that the primary school pushing up from 
 below has extended itself so as to include that material 
 which has been rejected from the secondary curriculum, 
 and the eight-year course of the elementary school does 
 not necessarily mark any natural division in the process of edu- 
 cation. This view of the matter is further evidenced by the 
 recent movement to divide the public school course into two 
 six-year divisions. At any rate as it is constituted, our elemen- 
 tary school course certainly does not mark the place where the 
 education of a great mass of our youth should cease. 
 
 The average individual is at fourteen just approaching the 
 time of life when it is possible for him to begin in earnest the 
 training that will fit him for his work. He is just entering the 
 period in his development when he will begin to see the world 
 in its proper relation to himself, and is it not at this time above 
 all others that his mind is susceptible to moulding in its rela- 
 tion to society and the world at large? It must also be borne 
 in mind that economic and social conditions have been rapidly 
 changing, that the problems confronting the man of to-day de- 
 mand a mental and moral training such as has never been de- 
 manded of men before, and that the individual who attempts to 
 meet these problems with an equipment such as the schools of 
 a generation ago gave, must inevitably fall far behind in the 
 struggle of life, if we mean efficient life. 
 
 All of the arguments that have been instrumental in the crea- 
 tion of free public high schools in cities and towns, apply 
 equally well to the establishment of high schools in rural com- 
 munities. Such schools will ultimately become the colleges of 
 the people, the institutions wherein the youth of the country will 
 receive their introduction to the sciences, to mathematics, to 
 literature, to history, and to the fine and applied arts. They 
 represent a period of training in the humanities (we do not 
 refer alone to the languages, since they are but a means to such 
 and end), and in such practical studies as will give a basis not 
 
Extension of High School Privileges a Necessity g 
 
 only for their ultimate culture, but for their final training in 
 their chosen economic pursuits. In short they will in time be 
 the means of refining not only the economic pursuits of life, but 
 they will raise the standard of living, beautify the home, and 
 refine the social relations of the people. 
 
 There is no other place where a good education will give such 
 returns to the individual as it will in the country, where the life 
 is more isolated, and where the individual has to depend largely 
 upon his own resources for his culture and entertainment. The 
 city with its many educational advantages is giving an oppor- 
 tunity to its youth that the country must sooner or later dupli- 
 cate, or our rural population will in time form a distinct class 
 which will grow more hopelessly rural as the years go by. Some 
 of the best blood of the nation- is still to be found in the rural 
 districts in this country, but this can not last long if the best 
 material keeps flowing to the city to be swallowed up in many 
 instances by the rabble, because, as individuals, they find them- 
 selves handicapped by the lack of a proper education. 
 
 If the education of our secondary schools is to be classed as 
 cultural, the youth of our rural districts need it more instead of 
 less than those who live in towns and cities, because the cities 
 and large towns offer other means of acquiring culture that are 
 not offered in the country communities. If, on the other hand, 
 the secondary training is to become economic or practical, 
 the individual in the country needs this training for 
 his chosen work no less than his city cousin. It is to be hoped 
 that in the final struggle between the so-called culture and trade 
 schools of the secondary type, enough of the common culture 
 element will be left to make it possible for a free mixing of the 
 city and country bred youth. Further, it is to be hoped that the 
 secondary training of the future does not become so specific as 
 to bar a constant change of individuals from rural to urban life 
 and the reverse. It would be a death blow to many of our 
 cherished democratic institutions if we were to allow the develop- 
 ment of an educational system that would brand the child and 
 forever fix him in the environment in which he may happen 
 to have been born. 
 
 The rural high school has the further function of preparing 
 those who may wish to do advanced work, for the university. 
 
lo Extension of High School Privileges a Necessity 
 
 and other institutions of higher learning. The youth of country 
 and city are equally entitled to this opportunity, and it must be 
 provided by those who are adult and producers ; it is an obligation 
 to posterity that humanity has in a general way always recognized. 
 
 Such high schools when they have become a part of the com- 
 munity life will form the nucleus of the educational and social 
 life of the section in which they are situated. They will influence 
 the whole region educationally, and will stimulate the minds and 
 broaden the views of those whose school days will have ended 
 years before. It is impossible fully to estimate the value of the 
 influence of a good high school upon the citizens of these remote 
 sections of the country. Such an institution with its debating 
 societies and public lectures would ultimately become the forum 
 of the people where the vital questions of the day could be dis- 
 cussed, and where intelligent citizenship could be created. All of 
 these influences will, with the coming of these schools, inevitably 
 lead to a broadening and refining of the social relation in country 
 life. A large part of our education both cultural and practical 
 comes through contact with other individuals, and in general the 
 broader this contact the richer will be the opportunity it will pre- 
 sent. The rural high school, the community unit of which will 
 be of necessity much larger than the usual school district, will 
 serve to bring the young of a relatively large geographical area 
 together. The result of this can not fail to raise the general 
 standard of life in these various communities. 
 
 A reference to the state school reports will establish the fact 
 that wherever rural high schools have been created and main- 
 tained, the lower schools have shown an increased vitality. This 
 is what one would expect since they set a standard of excellence 
 which these schools try to reach. It is certainly very evident 
 from a study of the facts of the case that wherever there has 
 been no standard of measure placed upon the product of the 
 public schools they have shown less vitality and are of a lower 
 standard than in regions where such a standard has been main- 
 tained.- And no standard has been so effective as that placed by 
 an institution which is destined to receive their output. This is 
 largely due to the fact that no other authority has created a 
 definite standard of efficiency. The meeting of the pupils pre- 
 
 ' Report of State Superintendent of Illinois, 1904, pp. 173-184. 
 
Extension of High School Privileges a Necessity ii 
 
 pared at the various elementary schools of the district, in actual 
 social and mental contact, has a wholesome reactionary effect upon 
 the schools from whence they come. Again the child sees be- 
 yond him a goal toward which to work, and even if he is never 
 destined to reach it, it will have helped him somewhat. 
 
 These schools will also relieve the congestion of, older pupils 
 who remain in the elementary schools in the hope of getting 
 something more out of a course which they have already com- 
 pleted in most if not in all lines. Thousands of such boys and girls 
 linger about these schools every year and finally become dis- 
 couraged and leave, because of lack of work and attention, and 
 if they do remain, as in some instances they certainly do, they 
 succeed as a rule, only in forming indolent habits, or if they suc- 
 ceed in enlisting the interest of the teacher they take the time that 
 justly belongs to the younger children who are accordingly 
 neglected. This condition exists at one time or another in almost 
 every rural district in the country, which is located at too great 
 a distance from a high school. 
 
 These institutions will reflect back upon the elementary schools 
 through the indirect process of giving them better prepared 
 teachers. It is perfectly safe to assume that these lower schools 
 will, to the last one, have teachers that have a secondary training 
 as a minimum, if they are located under the shadow of a rural 
 high school. This is an exceedingly important factor when the 
 enormous number of teachers employed in these same country 
 ■districts, who are fresh from the schools they teach or from a 
 neighboring school of no higher grade, is taken into consideration. 
 Again in districts that have reached a higher standard of qualifi- 
 cation for teachers, the rural high school comes in as a feeder 
 to the normal school which gives opportunity for the professional 
 training of their output. Many of these normal school trained 
 teachers naturally enough find their way back to their home 
 communities. The following tables will throw some light upon 
 this subject of the preparation of teachers in high schools. 
 
12 Extension of High School Privileges a Necessity 
 
 TABLE I' 
 Relating to High School Trained Teachers in Illinois 
 
 Name of high school 
 
 Teachers sent out 
 
 Graduates 
 
 Under 
 graduates 
 
 Total 
 teachers 
 
 Total 
 graduates 
 
 Biggsville. 
 Harvey. . . 
 Harrisburg 
 
 Joliet 
 
 Lasalle . . . 
 Neuvoo. . . 
 Oak Park. 
 Ottawa. . . 
 Pontiac* . . 
 Roseville . 
 Savana . . . 
 Streator . . 
 
 Totals. . 
 
 i6 
 
 14 
 
 o 
 
 76 
 
 4S 
 
 23 
 
 o 
 
 o 
 
 90 
 
 5 
 o 
 
 1 54 
 
 3 
 S 
 o 
 
 14 
 6 
 o 
 o 
 o 
 140 
 I 
 6 
 o 
 
 19 
 19 
 
 o 
 
 90 
 
 SI 
 
 23 
 
 o 
 
 o 
 
 230 
 
 6 
 6 
 
 1S4 
 
 423 
 
 17s 
 
 S98 
 
 89 
 81 
 16 
 
 317 
 124 
 
 63 
 
 94 
 
 700 
 
 240 
 
 4S 
 
 20 
 
 500 
 
 2,299 
 
 The above schools are located in towns or cities. 
 
 ' Report of State Superintendent of Public Instruction, 1904, p. 163. 
 * This school has a training course for teachers. 
 
Extension of High School Privileges a Necessity 13 
 
 TABLE IP 
 
 Relating to the Number of Graduates ,Who Enter the 
 Teaching Profession Immediately Upon Completing 
 Their High School Courses, in the State of Wisconsin. 
 
 3 year 
 
 high 
 
 school 
 
 4 year 
 
 high 
 
 school 
 
 Totals 
 
 Graduated 1902-3 
 Taught 1903-4. . . 
 Graduated 1903-4 
 Taught 1904-5. . . 
 
 278 
 90 
 
 63 
 
 2,132 
 
 637 
 2,256 
 1 ,040 
 
 2 ,410 
 
 727 
 
 2,471 
 
 1. 103 
 
 Neither of the preceding tables takes into consideration such 
 individuals as have extended their preparation by entering nor- 
 mal schools and universities, and who sooner or later will have 
 returned to the schoolroom. 
 
 To put the matter another way thirty per cent, of the whole 
 number of individuals finishing the high schools of Wisconsin 
 at the end of the academic year 1902-3 taught in the elementary 
 schools the succeeding year and the following year 44 per cent, 
 of those having graduated the year next preceding also entered 
 the profession of teaching. 
 
 The illustrations given above are only a few of many that 
 might be presented. The same condition exists in all of the 
 states which have rural high schools located within their 
 boundaries; and where such schools do not exist, many of the 
 graduates of the city high schools find their way into the rural 
 communities where they teach, upon the whole, only long enough 
 to get sufficient experience to enable them to secure positions in 
 the towns and cities. 
 
 ' Compiled from Reports of Superintendent of Public Instruction of 
 Wisconsin, 1902-3-4-5. 
 
 General sources for chapter: — Reports of state superintendents and 
 commissioners of education for the states and territories for the last 
 thirty and in some instances the last fifty years. 
 
CHAPTER III 
 
 STATE AID TO RURAL HIGH SCHOOLS A PUBLIC NEED AND 
 
 DUTY 
 
 The need of rural high schools from the standpoint of the 
 individual and the community has already been discussed, there- 
 fore it remains only to deal with the problem from the standpoint 
 of the state. The state, being the largest social unit that directly 
 taxes itself for educational purposes, is as a consequence the most 
 comprehensive unit in educational administration and support. 
 The attitude of the national government has always been favor- 
 able to education, but it has left the administration of educational 
 affairs to the various states and territories. It has on the other 
 hand bequeathed to the various states and territories large grants 
 of land to be strictly used for the purposes of public education, 
 in addition to this it has in one instance contributed to the various 
 states a considerable amount of its excess funds, which amounts 
 were in most cases applied to education by these states. All 
 of the states administered under constitutions adopted since the 
 War of the Rebellion have made provision in these same consti- 
 tutions for the establishment of a system of free public schools, 
 and such states and territories as do not have constitutional pro- 
 visions, have established like systems through legislative enact- 
 ments. The only questions are then, to what extent shall this 
 education be carried, and how shall it be supported ? 
 
 One of the prime functions of the democratic state is to raise 
 the general intelligence of its citizens to the highest possible 
 degree. This is, in fact, the only policy that it may pursue, 
 would it perpetuate itself. The many vital social problems which 
 confront the country to-day can only be solved through increasing 
 the general intelligence of the people at large, and by giving 
 the freest opportunity for the development of individual genius. 
 All of the states have, in intent at least, made provision for the 
 increase of general intelligence to the extent of providing an 
 elementary education. That this provision has been ample in 
 the past is not sufficient evidence that it will suffice in the future. 
 The growing complexity of our economic and social life is 
 making demands upon citizenship that cannot be met by an edu- 
 
State Aid to Rural High Schools a Public Need and Duty 15 
 
 cational preparation that was intended for the relatively simple 
 life of the past. Many of the states have already recognized 
 this, and are making strenuous efforts to extend their systems 
 to more completely include the high schools. No amount of 
 preparation in the field of leadership will be sufficient to give 
 strength to a democracy unless it is accompanied by an increased 
 intelligence in the general citizenship. Again there are all degrees 
 of leadership, and this means many degrees of preparedness on 
 the part of an immense army of different individuals; such an 
 army as it would take all of the universities and colleges many 
 years to provide. The state must then of necessity look to the 
 high school as an institution for the preparation of leaders of 
 a secondary class, and since upon the whole such secondary 
 leadership will in rural communities be assumed by those of 
 rural birth it is essential that such communities shall have in 
 their midst an institution for their training. 
 
 It has been pointed out elsewhere that the elementary schools 
 are greatly stimulated by the estabHshment of secondary schools. 
 In fact it may be doubted whether it is possible for them to 
 become highly effective unless there is some higher institution 
 to receive and measure the efficiency of their product. Not only 
 is such a standard necessary, but it must be clear cut and defi- 
 nite, and heretofore no such standard has arisen, either for ele- 
 mentary or secondary schools, that has not been created by an 
 institution destined to receive their product. Some are inclined 
 to the opinion that this is all wrong and it may be so, but it is 
 inevitable nevertheless, and if such standards are to be created 
 the ultimate correction must come from above, and this is par- 
 ticularly true for the elementary school, because the early age at 
 which the average child finishes the course makes it impossible 
 to set a standard of social and economic utility that will be defi- 
 nite and capable of being measured. It follows then that the state 
 cannot build up an effective system of public schools until it 
 makes provision for the output of the elementary schools, and 
 provides educational opportunities for the individual up to the 
 time that he assumes the responsibility of economic production. 
 
 Again the elementary schools cannot become as effective as 
 they might be until they are provided with an educated corps 
 of teachers. To secure the best of these the state must give the 
 
1 6 State Aid to Rural High Schools a Public Need and Duty 
 
 widest opportunity for the continuation of the education of all in 
 every community. It is not sufficient to the purpose that a few 
 special schools be established to train teachers at a long distance 
 from these rural communities. The best evidence of this ineffi- 
 ciency is shown by the fact that but a small portion of the teaching 
 corps of the country has completed a normal school course and 
 yet these schools are comparatively plentiful and entirely free 
 to those who desire to prepare for the profession. They are, 
 however, so located as to require that the student must leave 
 home to secure their advantages. It is a well known fact that 
 the immediate region wherein these schools are located furnishes 
 an unusually large proportion of their students, and that the 
 schools in such favored communities are more largely supplied 
 with normal graduates. The best of the available material finish 
 the elementary schools before they are old enough to leave home, 
 and in addition to this the extended time required for a grammar 
 grade prepared pupil to finish his training away from home is 
 such as- to bar many on the grounds of economy. Thus it turns 
 out that the normal schools succeed in preparing but a small 
 portion of the teachers needed in the elementary schools of the 
 country. The truth of this is indirectly evidenced by the fact 
 that the normal schools of the country that have raised their 
 entrance requirements so as to admit only teachers and high 
 school graduates are preparing an increased number of teachers 
 each succeeding year. This increase is out of proportion to 
 the increase of previous years and to the increase in the out- 
 put of such normal schools as still admit graduates of the gram- 
 mar grades. Coming back to the main question at issue it is an 
 undisputed fact that a large proportion of the elementary schools 
 of the country are taught by teachers that have received no 
 training other than that afforded by the school which they teach 
 or a school of equal rank. That the rural high school will in a 
 large measure solve this problem of better teachers for the 
 elementary schools in rural districts cannot be questioned.^ The 
 influence of these schools will be felt not only through the teachers 
 that they place directly into these schools of lower grade, but 
 through the individuals that they send to the normal schools of 
 the country. 
 
 ' See Chapter II, last paragraph. 
 
State Aid to Rural High Schools a Public Need and Duty i-j 
 
 It is vital to the welfare of the democratic state that the various 
 community units of which it is composed do not develop sepa- 
 rate social classes, and this is just what is happening in this 
 country at the present time. Many rural communities are rela- 
 tively retrograding rapidly; this is in part due to the fact that 
 they do not offer adequate educational opportunity to the young, 
 and to the consequent migration of the better element to the 
 towns and cities where better educational facilities may be 
 secured. The child of fourteen or fifteen cannot be sent to these 
 towns and cities alone and the only alternative is to leave the 
 country entirely. It is certain that parents of discretion will not 
 permit their children to leave home at any such age, and it is 
 just as certain that their ambition for their children will not 
 permit them to remain in a community where proper educational 
 opportunities are denied them. The places left vacant by these 
 people are immediately filled by individuals of foreign birth. 
 These together with the less ambitious and the less prosperous 
 of American birth are at present tending to constitute our agri- 
 cultural classes. The welfare of our country depends to a great 
 extent upon our ability to absorb and work into Americans these 
 foreign born peoples, and it is important that their lot be cast not 
 with the least but with the most progressive and cultured of 
 our citizens. 
 
 The only way the state can counteract this tendency toward 
 community class differentiation is through the agency of the 
 public schools. The extension of educational opportunities in 
 these districts until they are more nearly equal to the opportu- 
 nities given by the cities will have a tendency to check migra- 
 tion somev/hat and will also raise the general standard of intelli' 
 gence of those that remain. Such opportunities will serve also to 
 Americanize the foreign element settling in these districts. They 
 will also raise the barrier which hinders the city bred from 
 making permanent homes in the country. All of which will lead 
 to the reestablishment of social intercourse between our rural 
 and urban populations. 
 
 In all of the turmoil arising from our strenuous efforts to 
 extend our commercial supremacy we are prone to forget that 
 history has proven that the greatest asset a nation can possess 
 lies in the cultivation of its soil and the developing of an intelli- 
 
£8 State Aid to Rural High Schools a Public Need and Duty 
 
 gent and cultured class of rural people. And though agriculture 
 has made enormous strides in recent years in this country it has 
 by no means kept pace with other industrial pursuits. Its largest 
 asset has not been through increased intelligence in agriculture 
 proper, but through a rapid development in the production of 
 tools and machinery. This sudden development in material aids 
 did not find its impetus in agriculture as such, but it largely 
 grew out of the rapid development of the mechanical arts which 
 in turn received their impetus from manufacture and transpor- 
 tation. As a science it must be admitted that the subject of 
 agriculture is in its infancy in this country. The only influence 
 that can raise the agricultural pursuit to an art is the increased 
 education of our rural population. In recognition of this need 
 the national government has been making strenuous efforts to 
 increase the general knowledge along this line by providing for 
 the preparation of leaders in the field. But such leadership will 
 avail little until the intelligence of the rank and file of farmers 
 is increased, and this burden must rest with the various states. 
 A few of the states have recognized that there is such a problem, 
 and some of them have provided for a number of agricultural 
 schools of the secondary type. Wisconsin has provided for the 
 establishment of such a school in any county of the state. These 
 schools are as a rule too short in term and too narrow in scope 
 to admit of a good secondary education. To get results an 
 agricultural school must, like a commercial school, teach some- 
 thing more than the particular subject. These schools must if 
 they would succeed give a course rich enough in other material 
 to become cultural in a general way. If we are to sacrifice 
 the culture side of our secondary education to secure the prac- 
 tical training we would much better let it alone. But this need 
 not be the case, the introduction of the practical courses into 
 the secondary schools does not necessarily entail the throwing 
 out of all of the subjects that have heretofore composed the 
 curricula of these schools. Such an injection of new material 
 may require the modification of many of these subjects both in 
 content and presentation, and the disbanding of some others, but 
 a school which ignores totally the languages, and all such sciences 
 as do not have a direct bearing upon the subject of agriculture, 
 and the fine and applied arts as such, will never meet the demands 
 
State Aid to Rural High Schools a Public Need and Duty 19 
 
 of the country youth. Nor will such schools entice the country 
 boy to remain in the country. The country youth demands above 
 all else some of the culture that is denied him in the rural life 
 of to-day. What we need in the country is not more of what 
 we already have but some of the opportunities for culture that 
 are denied by the conditions of country life, and which may be 
 had for the taking in urban communities. What we want in 
 rural communities is not agricultural high schools but agricultural 
 courses in high schools. If in this struggle we have to sacrifice 
 either the culture side of secondary education or the practical 
 side we had better let the practical side go. The individual when 
 he takes up the problems of life seriously will have little enough 
 time to spend upon the finer things of life which make it worth 
 while. To put it another way the man who has had a good 
 liberal secondary training of even the old type will much more 
 readily get what he may have missed in not having completed 
 an agricultural school than he will get that which he would have 
 missed had his training been reversed. Just as the high school 
 graduate has in the past surpassed the business college graduate 
 so will the graduate of the rural high school in the long run 
 surpass the graduate of these elementary agricultural schools, 
 as at present conceived. 
 
 Equal opportunity to all is a fundamental doctrine of democ- 
 racy, and the mere fact that the child happens to reside in a 
 community where it is more difficult to give educational 
 advantages should not in the large militate against him. It 
 may be essential to the welfare of the state at large that his 
 parents be there, and if the economic conditions be such as to 
 hinder the community from giving him proper educational advan- 
 tages, t-he state should see to it that the conditions are changed, 
 or that the deficiency in opportunity be, if possible, supplied. 
 
 The welfare of the state depends not only upon the general 
 intelligence of its citizens, but also upon intelligent leadership. 
 The leaders in a democracy should not only be intelligent, but 
 they should possess the largest possible amount of intelligence. 
 The necessity for the preparation of leaders has been recognized 
 by the national government as well as every state in the Union 
 to a greater or less degree. The national government has recog- 
 nized this principle by the founding of military and naval acade- 
 
20 State Aid to Rural High Schools a Public Need and Duty 
 
 mies and colleges, by the support of agricultural colleges, and 
 by grants to institutions of higher learning in a large majority 
 of the states. The various states have recognized the principle by 
 making large grants of public lands and of moneys to the institu- 
 tions of higher learning in their confines, and by the establish- 
 ment and support by direct taxation, or by special appropriations, 
 of state universities, colleges, and normal schools. 
 
 As previously pointed out the various states have upon the 
 whole made it possible for all to have the opportunity of receiving 
 an elementary education, but the present status of high schools 
 is by no means such as to provide secondary educational opportu- 
 nities to any great proportion of the rural population. Some 
 of the states have created preparatory schools in connection with 
 their higher institutions of learning, but these are not adequate 
 •to the purpose for which they were intended, since they necessi- 
 tate the child leaving home at an age when he should be under 
 the direct charge of his parents, and since the parents in many 
 cases cannot afford to keep their children in these schools. 
 At this age the child is not as a rule self-supporting at least 
 ia a degree that would enable him to support himself and still 
 find time to do the school work. In which case, if the parent 
 cannot afford to support him away from home, he fails to reach 
 the university. This is not necessarily the case with the individ- 
 ual who has succeeded in finishing the secondary course of in- 
 struction, as is evidenced by the large number of boys and girls 
 who succeed in making their way through the universities. 
 
 As a result of this condition an undue proportion of our college 
 and university students are town or city bred, and this proportion 
 is continually on the increase. If the state desires the best mate- 
 rial out of which to create its leaders, it must extend the opportu- 
 nity for the securing of a secondary education to every individual 
 in every community in the country. Much of the best material 
 in the nation is yearly going to waste, in so far as leadership is 
 concerned, because of this unsurmountable gap in our free school 
 system. Such a loss is of vital importance to the state and 
 country. 
 
 " The discovery and development of superior ability wherever 
 it exists is one of the safeguards of a democratic society. But to 
 secure this, secondary education should be within the reach of all 
 
State Aid to Rural High Schools a Public Need and Duty 
 
 — not merely of all the cities. Moreover, free secondary educa- 
 tion sufficiently broad and so flexibly administered as to meet the 
 wants of all pupils whether they intend ultimately to go to college, 
 enter a profession, go into business, or remain on the farm, would 
 undoubtedly tend to check the migration of the best families 
 from the country to the cities — a very desirable result."" 
 
 Dr. Cubberley in his exhaustive study, " School Funds and 
 Their Apportionment," has pointed out that the mass of the rural 
 districts is already overburdened in their attempt to support ele- 
 mentary schools of an inferior class while the towns and cities 
 with comparative ease support not only elementary schools but 
 also high and sometimes technical schools. The following table 
 taken from Dr. Cubberley's work illustrates this fact better than 
 any words. 
 Highest and Lowest Rate of Tax in Mills Necessary to 
 
 Produce $250.00 " Per Teacher " by Local Taxation, 
 
 WITH State Averages.* 
 
 
 Rate of taxation in mills 
 
 
 Highest 
 
 Lowest 
 
 Average 
 
 
 II .62 
 2.97 
 
 8.41 
 
 4.90 
 
 "57 
 
 7S6 
 
 10.88 
 3.18 
 
 10.41 
 
 ■36 
 1.42 
 
 1.36 
 .88 
 .72 
 
 3S6 
 
 3-9° 
 •44 
 
 1.76 
 
 
 8 Connecticut counties 
 
 
 State of Connecticut 
 
 1-75 
 2.68 
 1.42 
 
 15 towns of Windham County 
 
 23 towns of Fairfield Covuity 
 
 State of Wisconsin 
 
 1-95 
 
 8 Missouri counties 
 
 
 332 
 
 
 
 
 State of California 
 
 
 10 Indiana counties 
 
 
 
 2.99 
 
 
 ' Hanus, School Review, Volume VIII., p. 345. 
 ' Cubberley, p. S3- 
 
2 2 State Aid to Rural High Schools a Public Need and Duty 
 
 The above table clearly shows that no unit of taxation less than 
 the state can be counted upon to give the financial aid necessary 
 for the universal establishment of free secondary schools. Cer- 
 tainly the county as a unit of taxation and support for secondary 
 schools is superior to the township or district unit, but the above 
 clearly shows that if the state allows the burden to rest upon 
 the various counties there will be little result except possibly in 
 some of the thickly populated eastern states. Massachusetts has 
 undoubtedly secured a considerable result by enforcing upon the 
 towns the support of secondary education, but it must be remem- 
 bered that the population of this state is upon the whole crowded 
 into villages and cities, and notwithstanding this she has in recent 
 years recognized the necessity of extending aid to secondary edu- 
 cation in the poorer towns. 
 
 In many sections of the country the proposition to establish 
 high schools in a given community, or to give state aid to such 
 schools is frequently met with the argument that secondary educa- 
 tion is not and never has to any extent been the function of the 
 state. This statement is certainly historically incorrect, because 
 the early grammar schools of colonial times were the first to 
 receive state aid unless one would include the occasional appro- 
 priations that were made to colleges. And these same grammar 
 schools, which were principally preparatory schools, were among 
 the first to be supported by general taxation.* 
 
 In 1636 just six years after Boston was settled, when the entire 
 population of Massachusetts Bay Colony did not exceed 5,000, 
 the general court appropriated 400 pounds sterling to Harvard 
 College. This sum exceeded the tax levy, for the entire year, 
 for all other purposes combined. In 1647 the colony passed a 
 law compelling every town with a population to exceed 100 
 families to support a public grammar school to fit boys for Har- 
 vard.* 
 
 These schools were to be free at the option of the towns sup- 
 porting them. Connecticut followed the lead of Massachusetts 
 with similar laws. Every colony gave support to secondary 
 or higher education before the Revolution, and every state from 
 its inception has given support to higher education.* The atti- 
 
 ■* Brown : — The Making of Our Middle Schools, Chapter III. 
 * Dexter: — History of Education in America, Chapter III. 
 
State Aid to Rural High Schools a Public Need and Duty 23 
 
 tude of the national government is shown in that in 1787 it set 
 aside two complete townships in every new territory for the 
 support of higher education. The great mass of the Western 
 States support state universities and other institutions of col- 
 legiate grade. In view of the fact that the state is supporting 
 in most instances universities and to a greater or less degree ele- 
 mentary schools, it is difficult to see how the position can be 
 maintained that secondary education is not a function of the state. 
 
 The antagonistic attitude frequently held toward the extension 
 of secondary educational institutions is probably a result of the 
 fact that the state support of the higher institutions of learning 
 has usually been through the granting of special subsidies and 
 the consequent nonappearance of the item upon tax receipts. 
 Again the settlement of the West was by men who did not bring 
 into the new country much of the culture and training present 
 among the early settlers of New England ; and in these new 
 states the elementary schools were largely a development of the 
 new civilization, growing out of the immediate wants of the 
 people and rarely if ever exceeding the practical need of these 
 people with their scattered population and simple life. In short 
 this unfriendly attitude toward the institution, when held by men 
 of intelligence, is probably a result of the fact that we are just 
 passing out of the frontier stage of our development and are but 
 beginning to look upon the matter of education, particularly 
 higher education, as essential to the new condition presented by 
 the evolution of a higher and more complex civilization. 
 
 It seems that many persons have worried over the pauperizing 
 effect of giving to the individual a free education. This has 
 been one of the stock arguments of the opponents of free educa- 
 tion from the first inception of the idea. In England, even to-day, 
 the charity view of the matter is yet largely held in connection 
 with the public schools. In this country the practical workings 
 of a free educational system has totally disproved that it can 
 have a pauperizing effect upon its recipients. The claim that the 
 public provision of free educational opportunities in this country, 
 in so far as such opportunities have been created, have tended 
 to pauperize the recipients of them is of course untenable, and 
 the further claim that the extension of such opportunities to in- 
 clude secondary schools will tend to pauperize the youth of the 
 
24 State Aid to Rural High Schools a Public Need and Duty 
 
 land is, in view of our past experience of the last forty years, 
 equally untenable. If the contention were true we would already 
 be a nation of paupers. 
 
 Neither is the statement that the increase of state aid to the 
 rural communities, in order that they may provide better educa- 
 tional opportunities both elementary and secondary, will tend to 
 pauperize them, borne out by this experience. It is a fact, that 
 an increase in state aid to elementary and secondary schools has 
 invariably led to an increase in local taxation for the purposes of 
 education.' This false theory has also time and again been 
 directed against the present tendency to supply free of cost text- 
 books and other needed apparatus to the children. The error in 
 this argument is of a sociological character. The peculiar nature 
 of an education, as such, makes it impossible to pauperize it, since 
 it cannot be given directly to the individual, but on the other 
 hand must be secured by each and every one through individual 
 effort. Thus it is impossible by any human contrivance to pauper- 
 ize it, because no amount of opportunity can educate or relieve 
 the individual necessity to strive, in the securing of an education. 
 Further educational opportunity is, when properly administered, 
 only a loan to the individual, and he can neither barter nor 
 monopolize it. It is a loan that will pay the largest of all divi- 
 dends to the state. 
 
 There is another phase of the general subject of extending state 
 aid to the institution of public education which has not been 
 worked out by any one, so far as we know. At every attempt of 
 the state to extend its fostering care to th« schools of the remote 
 and relatively poor districts, we hear the representatives of the 
 great wealthy city districts giving vent to the cry that they are 
 already paying into the educational fund of the commonwealth 
 much more than they are receiving from it. This viewed in the 
 proper light should of course give rise to no such controversy, 
 so long as the opportunities extended to the children in these 
 remote districts do not exceed those provided to the city child. 
 But there is something the matter with the claim of the large city 
 in this matter from the purely economic standpoint. 
 
 The great city of a commonwealth is in a sense the clearing 
 house for all the lesser cities, towns, and rural communities. The 
 
 ■ See various Reports of State Superintendents. 
 
State Aid to Rural High Schools a Public Need and Duty 25 
 
 smaller cities are the clearing houses for more restricted com- 
 munities, and the towns are the clearing houses for the rural 
 communities. There is no doubt but that the banking institutions 
 of the smaller cities carry on a large credit business with similar 
 institutions in the metropolis of the commonwealth, and that the 
 towns carry on a credit business with these same smaller cities, 
 and again that the rural communities carry on a credit business 
 with the banks of the towns and villages. To put the matter 
 directly there is a continuous flow of surplus earnings to the 
 larger cities for investment there. This is clearly evidenced by 
 the fact that the failure of one or two of these larger institutions 
 will as a rule cause a crash clear down the line, until the actual 
 loss is felt even in the most remote communities. 
 
 The point which we wish to establish is this, that the assessed 
 valuation of a great city is not necessarily upon property owned 
 by the people residing in that city, but that it may and actually 
 does represent the wealth of a multitude of people who live in 
 smaller cities, towns, villages, and rural communities. This being 
 the case the argument that the great cities are compelled to con- 
 tribute more than their just share to the support of free public 
 education is not well founded in fact. The claim that these cities 
 are compelled by the state to extend charity to the rural com- 
 munities in matters of education and other benefactions is not 
 correct. It would seem that here is a rich field for invesftigation 
 which might if it can be cultivated lead to an entirely new view 
 of the matter of state benefactions. 
 
 General sources for chapter: — 
 
 Cubberley : — School Fvinds and Their Apportionment. 
 
 Brown : — The Making of Our Middle Schools. 
 
 Dexter: — History of Education in America. 
 
 Reports of state superintendents and commissioners of education 
 
 for the states and territories for the last thirty and in some 
 
 instances the last fifty years. 
 
CHAPTER IV 
 
 UNITS OF ORGANIZATION AND COURSES OF STUDY FOR 
 RURAL HIGH SCHOOLS 
 
 The units of organization for rural high schools vary widely 
 in the different sections of the country as well as in some of the 
 states themselves, the smallest of these units being the district. 
 These district high schools in so far as they may be classed as 
 rural, have largely grown out of the elementary schools through 
 the gradual addition of high school subjects. This is particularly 
 true in such states as have had the district unit of organization 
 in matters of education. In every state with the district unit of 
 organization and taxation, where the law has failed to define the 
 public school as a strictly elementary school, the rural high schools 
 have grown up as district schools. Such conditions as permit of 
 this method of extension of the elementary schools have their 
 strong points. Many of the large prosperous high schools of 
 the country have evolved from the elementary schools in this 
 manner, and a large number of these would not now exist had it 
 not been for the pioneer work performed by the early elementary 
 schools. This type of development is still going on in many parts 
 of the country at the present time. 
 
 The great weakness of the rural district unit is, that as a rule, 
 it has neither the pupils nor the finances out of which to create 
 a high school. Other things being equal, the rural high school 
 will increase in efficiency just in proportion as it can add to itself 
 pupils and teachers. 
 
 The union of districts for high school purposes is also an in- 
 diixct outgrowth of the gradual extension of the elementary 
 school. It is quite probable that as a type it is the result of the 
 combining of two or more advanced district schools that had 
 already developed considerable high school work in connection 
 with their elementary courses. This system of organization for 
 high school purposes has some advantages over any of the others, 
 since under a well defined administrative policy it would permit 
 of a more economic distribution of schools than would be pos- 
 sible under the township system. The population of a state is 
 not distributed according to township lines, but is usually, even 
 
Units of Organization and Courses of Study 27 
 
 in the most remote districts, distributed about small towns and 
 villages, and these small centres of population are, as a rule, well 
 distributed over the territory. They generally, in a small way, 
 constitute the business centres of these several ccanmunities, and 
 are usually located in the most densely populated districts of the 
 region. If high schools were established in these small towns 
 and villages, they would be within reach of most of the pupils, 
 and if the surrounding territory were properly divided, the 
 scheme would yield itself readily to the transportation of pupils, 
 which is, in the near future, going to become one of the greatest 
 factors in the development of such schools. These small towns 
 or villages, being the centres of trade for the surrounding coun- 
 try, and the points for the distribution of the United States mails, 
 would necessarily lend themselves better to the solution of the 
 problem of transportation than the townships. The old saying, 
 that "All roads lead to Rome," has a particular significance here. 
 On the other hand the township system of organization must do 
 one of two things, either locate its high school or schools in the 
 larger town or towns, or locate it or them so as to geographically 
 occupy the centre of the township or the centres of smaller geo- 
 graphical divisions. If the first course be pursued, it will be neces- 
 sary for many of the pupils to travel across the entire township 
 while a high school may be located within a few miles of them in a 
 neighboring township. If however the school is located in the 
 geographical centre of the township, the mass of the pupils will 
 in all probability have to travel long distances. In a few of the 
 states where the township system prevails, the difficulty has been 
 surmounted by permitting the pupils to attend the high school 
 of an adjoining township, when their own high school is too 
 distant to be easily reached, the district or the township where 
 the pupil resides paying the tuition. This however, only serves 
 to complicate a system which need not exist. The practice 
 serves further to weaken financially the very schools that in many 
 instances can least afford it. 
 
 The township unit of organization is more prevalent than the 
 district unit in so far as it applies to rural high schools that have 
 the state recognition as such. This is a perfectly natural con- 
 dition of aflfairs, since in the most of the older and wealthier 
 states the township constitutes the unit of taxation and organiza- 
 tion for public school and other civil purposes. The Eastern 
 
28 Units of Organisation and Courses of Study 
 
 and Middle Western states have largely organized their schools 
 upon the township unit basis, while the Rocky Mountain and 
 Western states have practically ignored the township unit in 
 edvicational matters. So long as the unit of high school organ- 
 ization is made to conform with the political units of taxation 
 and administration, the township unit is the most desirable, since 
 the county high school plan necessitates, to a large extent, the 
 removal of the pupil from the home. 
 
 The union of townships into high school districts has been 
 employed to some extent where the townships covered a small 
 area, or where they separately have been unable to support high 
 schools. This plan is advisable rather than to inadequately sup- 
 port two or more high schools, and with the free transportation 
 of pupils could be made to meet very satisfactorily the wants in 
 some communities. 
 
 The county plan of organization is very largely practiced, 
 especially in the southern and western parts of the country. 
 This plan usually, though not always, implies entire local support. 
 
 There are other types of schools in the various states that have, 
 to some extent, served and in fact still serve to take the place 
 of secondary schools in rural communities. The private acade- 
 mies of the eastern section of the country have served this pur- 
 pose to a considerable extent. Some of the New England states 
 at the present time permit the payment of the tuition of a large 
 number of pupils in these schools, by the various towns in which 
 they are located. In some instances the state recompensates 
 these towns in an amount equal to a part or in some instances to 
 the whole of this tuition. 
 
 These academies and other private or semi-private institutions 
 of equal rank in the South have, until very recently, almost 
 entirely served as secondary schools, though they have, as a rule, 
 collected tuition from their pupils. The Central States also have 
 had a large number of such schools. The states of Ohio and 
 Indiana in particular have in the past had a great number of 
 so-called colleges and other private institutions of secondary 
 rank well distributed over their territory. They are, however, 
 rapidly giving way to the free public high schools. 
 
 The state normal schools have in the past to at least some 
 extent served as secondary schools, and since in most instances 
 they are located in the agricultural regions, and have usually 
 
Units of Organisation and Courses of Study 29 
 
 charged no tuition, they have played no small part in the secon- 
 dary training of the rural youth of the country. These institu- 
 tions have, however, in recent years tended to raise their entrance 
 requirements so as to admit only high school graduates and certi- 
 fied teachers, and as a result they are serving less and less the 
 function of secondary schools. The fact that it has been possible 
 for them to raise their requirements for entrance so as to include 
 in general but high school graduates, is merely an evidence of 
 the rapid growth of secondary schools. Many of these institu- 
 tions, notably in the Middle West, still serve to a considerable 
 extent the purpose of secondary schools, as is evidenced by the 
 relatively large number of boys enrolled in comparison with the 
 number of men in the teachers' profession in these states. 
 
 The courses of study in the rural high schools are very similar 
 to those of the city high schools in the states wherein they are 
 located. The most notable difference being that they offer a 
 smaller number of courses, a direct result of the small teaching 
 force employed. Most of the states have, however, required 
 a course other than the classical course in these schools, making 
 the foreign languages elective where offered at all, and in almost 
 all instances one or more of them are given. A notable exception 
 to this general rule is the course outlined for the Florida state 
 high schools, where the required course practically includes five 
 parallel courses as follows : English History, Mathematics, Latin, 
 and Science, — the elective courses being German, French, Greek, 
 and Spanish. 
 
 Wisconsin requires that* each free high school shall give a 
 course similar to an English Scientific course and permits the 
 addition of an Ancient and Modern Classical course. 
 
 Massachusetts requires for its rural high schools, employing 
 two or more teachers, the offering of a similar course to that of 
 Wisconsin. The state refuses to recognize the one teacher 
 high schools. 
 
 The following rules governing the making, adopting, and ad- 
 ministering of courses of study for the Free High Schools of 
 Wisconsin were adopted in 1903 :^ 
 
 ' Report of the State Superintendent of Public Instruction of Wis- 
 consin, 1903-4, p. 96. 
 
30 Units of Organization and Courses of Study 
 
 1. All proposed courses of study must be approved by the 
 State Superintendent, * * *, 
 
 2. New Courses of study should go into force only at the 
 beginning of the year, * * *. 
 
 3. No course will be approved unless the teaching force is 
 sufficient for its administration, * * *. 
 
 Core of Required Work for All Courses. 
 
 Every four year course of study shall contain at least fourteen 
 units of work. Of these the following units of work should 
 be in every course of study (a unit of work to mean one year's 
 work of one period a day, or 180, or more, recitations). Recita- 
 tion periods should be not less than 35 minutes in length and a 
 longer period if desirable. 
 
 I. Mathematics : 
 
 Algebra, i unit. 
 
 Geometry, i unit 2 units 
 
 II. English: 
 
 Includes literature, literary readings, compo- 
 sition, and rhetoric 2 units 
 
 III. Science: 
 
 (a) Physics, i unit. 
 
 (b) Any one of the following sciences, or 
 a combination of no more than two of 
 them, botany, zoology, physiology, physi- 
 cal geography, i unit 2 units 
 
 IV. History: 
 
 (a) United States history, including history 
 of the constitution, i unit. 
 
 (b) Ancient history, or ancient and mediae- 
 val, or mediaeval and modern and English 
 history, i unit 2 units 
 
 V. Theory and art of teaching must be offered as an option 
 at least 12 weeks, or may be required in one or all courses. 
 (See section 496a, as amended by Chapter 439, Laws of 1901.) 
 
Units of Organisation and Courses of Study 3 1 
 
 VI. In courses offering less than four years of work in a 
 foreign language, there must be at least three units of work in 
 English, and two and one-half units in history. 
 
 Options. 
 
 Subject to the advice and sanction of the State Superintendent, 
 and subject to the conditions herein contained, high schools have 
 the following branches from which to choose in the construction 
 of school courses: 
 
 1. Any foreign language. 
 
 2. Chemistry or any one of the sciences named in the " Core 
 of required work." 
 
 3. History. 
 
 4. English. 
 
 5. Mathematics. 
 
 6. Civics. 
 
 7. Political economy. 
 
 8. Psychology. 
 
 9. Commercial subjects. 
 
 ID. Subjects found in manual training and domestic science 
 courses. 
 
 Maximum and Minimum Time Limits. 
 
 1. No subject, as a rule, should be offered for a less time than 
 one-half year. Algebra and geometry should never be required 
 for a period to exceed one and one-half years each. 
 
 2. Chemistry if offered, should be offered for a full year. 
 
 3. Not less than two years of any foreign language may be 
 offered. 
 
 4. No single science should extend through more than one year. 
 
 5. The maximum for history shall be three years, or four years 
 including civics and economics. Where instruction in American 
 history in the elementary schools is strong, it is advisable to have 
 United States history follow rather than precede European 
 history. 
 
 6. Civics, economics, and psychology should not be given to 
 exceed one-half year each. 
 
32 Units of Organisation and Courses of Study 
 
 y_ * * * 
 
 The Board of Education of the State of Massachusetts out- 
 hnes the following course of study for the rural high schools 
 of that state :' 
 
 A tentative course of study for a high school of two or three 
 teachers, 
 
 First Year. 
 
 Periods 
 
 Subjects required. R-^„t»" ^i^^^ls 
 
 Algebra 4 
 
 Elementary physics, thirty weeks; elementary 
 
 chemistry, ten weeks 4 
 
 Ancient history 3 i 
 
 Composition i 
 
 Total of required periods 12 i 
 
 Elective. 
 
 Latin 4 i 
 
 Drawing i i 
 
 Book-keeping 3 2 
 
 Each pupil to elect at least seven periods, including periods 
 without recitations. 
 
 Second Year. 
 
 Periods 
 Subjects reauired. Recitation without 
 
 ' ^ penods recitation 
 
 English literature 2 i 
 
 English history 3 i 
 
 Geometry 4 
 
 Grammar and composition i 
 
 Total of required periods 10 2 
 
 ' Report of the State Board of Education, State of Massachusetts, 
 for the Academic Year 1901-1902. 
 
Units of Organisation and Courses of Study 33 
 
 Elective. 
 
 Latin 3 2 
 
 French ". 4 
 
 Elementary chemistry, twenty weeks; botany, 
 
 twenty weeks 3 2 
 
 Book-keeping, twenty weeks; commercial geog- 
 raphy, twenty weeks 3 i 
 
 Each pupil to elect at least nine periods without recitations. 
 
 Third Year. 
 
 Periods 
 Subjects reauired. Recitation without 
 
 ' ^ periods recitations 
 
 English literature 3 
 
 United States history, twenty-five weeks; civil 
 
 government, fifteen weeks 3 
 
 Composition and grammar i i 
 
 Total of required periods 7 i 
 
 Elective. 
 
 Latin 3 2 
 
 French 3 i 
 
 Physiology and hygiene, twenty weeks, geology, 
 
 twenty weeks 3 i 
 
 Trigonometry, twenty weeks; geometry review, 
 
 twenty weeks 3 i 
 
 Each pupil to elect at least thirteen periods, including periods 
 without recitations. 
 
 Fourth Year. 
 
 Periods 
 
 Subjects required. ^^^^^- „-i{h-t^ 
 Composition and grammar i i 
 
 Total required points i I 
 
34 Units of Organisation and Courses of Study 
 
 Elective. 
 
 English literature 3 2 
 
 Latin 3 2 
 
 French 3 i 
 
 Advanced physics, twenty weeks; astronomy, 
 
 twenty weeks 2 2 
 
 Solid geometry, twenty weeks ; advanced algebra, 
 
 twenty weeks 3 i 
 
 Drawing 2 i 
 
 Any subject of previous year not taken 
 
 Each pupil to elect at least eighteen periods, including periods 
 without recitation. 
 
 The above courses are typical of those commonly required 
 in the rural high schools of the country. There is a general 
 feeling prevalent that these high schools should serve as finishing 
 schools rather than as preparatory schools for the universities. 
 As a result the university preparatory course is generally elective 
 in most of them, if it is given at all. 
 
 This is not a new attitude as one soon discovers when he 
 attempts to trace the development of the curricula of these 
 schools. From the very inception of the rural high school move- 
 ment, we find an attempt to differentiate the course of study 
 of these schools from that of the city high schools and the acade- 
 mies. In Wisconsin, Indiana, and Illinois especially this struggle 
 has gone on for years. The rural high school courses of these 
 states have passed through the ten -week subject curriculum stage 
 of development, which was a result of the general culture idea. 
 Unfortunately all such courses have been long since abandoned 
 and we have remaining, as the core of the curriculum, the most 
 practical subjects which have grown up recently in our city high 
 schools. That these courses are not entirely satisfactory is evi- 
 denced by the many attempts to introduce into these schools 
 subjects that have more bearing upon the lives and occupations 
 of the rural peoples. In recognition of the necessity for a differ- 
 ent type of high school for the rural communities, we have the 
 various states, in some instances, specifying the elimination of 
 the dead languages, and in others even the elimination of all 
 
Units of Organization and Courses of Study 35 
 
 foreign languages. In 1880 the legislature of Maine provided 
 that instruction in the ancient and modern languages should not 
 be given in any school aided by the state, unless such school 
 constituted a part of a graded system. At the time of passage, 
 this law had the effect of ruling all languages other than English 
 out of the curriculum of the rural high schools. The intent of 
 the law was doubtless, first, to secure a course in these small 
 high schools other than the college preparatory course, second, 
 to secure its most adequate administration by hindering the 
 scattering of the energy of the teachers over too wide a field 
 of instruction. In the administration of the laws governing high 
 schools, the various state superintendents and state boards of 
 education have as a rule insisted that the classical course should 
 not occupy the first place in the curriculum. The discrimination 
 against these courses has been placed upon the ground that but 
 a very small percentage of the output of these schools will ever 
 reach the university, and that such courses usually lead nowhere 
 if not followed by a college course. The states that follow the 
 plan of making the college preparatory course the dominant one 
 in these schools are usually those whose high schools are under 
 the direct supervision of the state universities. This is, however, 
 not true in all cases. 
 
 It is rather surprising to note that after thirty years' experience 
 in the administration of rural high schools they, as institutions, 
 upon the whole, provide instruction in no subjects that have not 
 been borrowed from the city high schools. This is the more to 
 be wondered at when we take into consideration the fact that 
 since the inception of the institution its friends and supporters 
 have continually advocated a different type of school for the 
 rural communities.' While most if not all of the educational 
 thinkers interested in these schools are crying for a differentia- 
 tion of curriculum for them, none are coming forward with the 
 worked out subjects to make up the new curriculum. It is safe to 
 say that when they find these subjects and succeed in installing 
 them we will immediately find them in most instances added to 
 the city high school courses. The people of the country want 
 what the cities have to give in the way of culture, and the cities 
 want what the country may add. 
 
 5 See Wisconsin, Chapter V. 
 
3& Units of Organisation and Courses of Study 
 
 All the types of rural high schools discussed in this chapter 
 receive in some instances state aid, and all are in other instances 
 entirely supported by local taxation. A detailed study of these 
 schools and their methods of support will be taken up in the 
 following chapters. 
 
 General sources for chapter: — Reports of state superintendents and 
 commissioners of education for the states and territories for the last 
 thirty and in some instances the last fifty years. 
 
CHAPTER V 
 
 STATE AID TO HIGH SCHOOLS 
 
 THli MAINE SYSTEM AS PRACTICED IN MAINE, WISCONSIN AND 
 
 MINNESOTA 
 
 Maine :^ In his report for 1871, the State Superintendent of 
 Maine, Warren Johnson, submitted the following form of bill to 
 the legislature of his state :^ 
 
 AN ACT IN AID OF FREE HIGH SCHOOLS 
 
 Section i. Whenever any city, town or towns, shall establish 
 and maintain a suitable free high school for such city, town or 
 towns, and shall annually make special appropriation, by tax or 
 otherwise, for the same, the state by this act covenants to appro- 
 priate annually in aid of said free school, not already provided for 
 by state aid, a sum equal to the amount raised and actually paid 
 by each city or town, for the like purpose, in no case to exceed 
 five hundred dollars on the part of the state: said appropriation 
 to be paid by the state treasurer from the general treasury, on 
 or after November first of each year, upon proper certification 
 by the governor and council, as provided in section four of 
 this act. 
 
 Section 2. It shall be the duty of the town, or school district, 
 in which said free high school shall be located, to furnish at the 
 expense of said town, or district, a suitable building and equip- 
 ment for said school. 
 
 Section 3. The course of study in said high school shall em- 
 brace the ordinary academic studies, and especially the natural 
 sciences in their application to mechanics, manufactures and 
 agriculture. 
 
 Section 4. Prior to the making or paying of any appropria- 
 tion by the state in aid of such school, satisfactory evidence shall 
 be furnished to the state superintendent of common schools, and 
 by this officer to the governor and council, that the city or town 
 asking aid, has complied with the conditions required in sections 
 one and two of this act ; and a certificate thereof shall be issued by 
 
 'The latest available State Report was 1907. The latest available 
 School Law was 1905. 
 
 'Report of State Superintendent of Maine, 1871, p. 92. 
 
28 State Aid to High Schools 
 
 the governor and council for the benefit of the city or town asking 
 such aid. 
 
 Section 5. Cities, towns and school districts are hereby ein- 
 powered to appropriate a portion of school money to sustain said 
 free high school, as indicated in this act, in addition to the special 
 appropriation required in section one. 
 
 Section 6. The free high school contemplated by this act shall 
 be free to all youth in the town on such conditions of attainment 
 or scholarship, as shall be fixed by the superintending school 
 committee of the town ; and the same school may be open to youth 
 from other towns upon the same conditions of scholarship, and 
 at the same rates of tuition as the superintending school commit- 
 tee may determine. 
 
 The bill was adopted by the legislature the following year, and 
 in 1873 there were 134 high schools which received aid from the 
 state. The total amount of money awarded by the state for the 
 year was $29,135. A large number of these schools were previous 
 to this time privately endowed academies which were turned 
 over to the various towns by their owners and managers. At 
 least two were at the time estabHshed by towns with no villages 
 of any consequence.^ By the end of the academic year 1878 the 
 number of schools had increased to 150, and the total enrollment 
 of pupils had reached 11,849. The amount of money awarded by 
 the state had increased to $35,827.86.* In his report for 1878 
 the state superintendent intimated that there was a determined 
 movement on foot to repeal the act providing state aid to these 
 schools. As a result of the struggle that followed the legislature 
 of 1879 passed an act suspending the operation of the law for 
 one year. Their excuse for the action was that a reduction of 
 state expenditure and taxation was necessary.' The following 
 legislature reduced the maximum amount that could be paid to 
 any one school to $250.00, and provided that ancient and modern 
 languages should not be taught by any high school aided by the 
 state unless it was a part of a graded system of schools. 
 
 These laws were modified from time to time in order to pro- 
 vide for the establishment of such high schools in adjoining 
 towns, in precincts including a part of a town, or in a part of 
 
 ' Report of State Superintendent of Maine, 1873. 
 * Report of State Superintendent of Maine, 1878. 
 ' Report of State Superintendent of Maine, 1880, p. 49. 
 
State Aid to High Schools 39 
 
 two or more towns.* It was also provided that no more than 
 two free high schools might be established in any one town, and 
 that the two taken together could receive only such state aid as 
 the town should have received had it supported but one such 
 school. If the town did not provide a high school, it was re- 
 quired to pay the tuition of all of its high school students in 
 attendance upon neighboring high schools, provided this tuition 
 did not exceed thirty dollars per year for any one pupil. The 
 state agreed to reimburse these towns in an amount equal to one- 
 half of the amount actually expended for the tuition of such 
 pupils. It was provided, however, that the state would not pay 
 to any one town, upon this account, an amount in excess of 
 $250.00 in any one year. 
 
 During the academic year ending June, 1890, there were 210 
 rural high schools which received aid from the state. These 
 schools had a total enrollment for the year of 15,299. In the 
 next ten years the number of schools had increased only to 214, 
 and the enrollment had decreased to 13,338. The slight increase 
 in the number of schools and the decrease in total enrollment 
 in them were due to the fact that there had been introduced a 
 state system of examinations for entrance to such schools. As a 
 result of this many of the schools that had been previously listed 
 as high schools and had received state aid as such were com- 
 pelled to disband, and in like manner the enr611ment in many 
 of these schools was decreased, though the actual number of 
 bona fide high school students had doubtless increased.'' 
 
 By the end of the academic year 1906-7, the number of free 
 high schools receiving direct aid from the state had increased to 
 230. These schools had an enrollment for the year of 13,124. 
 Of this number 4,116 or 31.3 per cent, were attending from rural 
 communities, 5,016 or 38.2 per cent, were attending from the 
 villages, and the remainder or 30.5 per cent, were attending from 
 cities. Of the total number 401 or 3 per cent, were common 
 school teachers. In addition to the above there were ten free 
 high schools which were adjudged to be below grade and which 
 consequently received no direct state aid.' 
 
 • Laws 1905, Sections 56 and 57. 
 
 ' Reports of State Superintendents for years, 1890-1900. 
 
 'Maine School Report, p. 198. 
 
40 State Aid to High Schools 
 
 The amount of state moneys, distributed for the aid of public 
 schools, was for the academic year 1906-7, $2.98 per cen- 
 sus child." 
 
 The amount provided by local authorities for the support of 
 free high schools during the same year was $273,810, and the 
 amount provided by state subsidy was $45,104. Thus it appears 
 that the state provides by direct subsidy an average of 14.1 per 
 cent, of the total expense of these schools.^" 
 
 Under the present law in Maine only Standard High Schools 
 may receive pupils whose tuitions are paid by local communities. 
 A Standard High School is one which is of sufficiently high 
 standard to meet the approval of the State Superintendent.^* 
 The superintendent reported 45 such schools in 1907.*'' 
 
 The free high schools of the state are under the direct super- 
 vision of the school committees of the various towns in which 
 they are located. 
 
 Of the 230 approved free high schools in the state 229 have 
 been established by the towns and but one has been established 
 by a precinct.*^ 
 
 Since 1891 Maine has been granting special subsidies to certain 
 academies. During that year, and for the following ten years, 
 fourteen academies were granted $500.00 each, two $800.00 each, 
 and one $300.00 The legislature of 1899 also made special appro- 
 priations to a large number of academies. Of the pupils enrolled 
 in these schools in 1906-7, 2,849 were pursuing academic studies 
 exclusively. Thus it appears that nearly 18 per cent, of the sec- 
 ondary pupils of the state receive their education in these schools. 
 
 Any town in Maine not supporting a free high school may 
 contract with an academy in its own precmcts for the education 
 of its pupils of high school grade, and is entitled to receive from 
 the state one-half of the amount expended for such tuition up to 
 the amount of $250.00 per year. The law, however, makes no 
 provision for the state inspection or supervision of such schools. 
 
 'Maine School Report, p. 128. 
 '"Maine School Report, p. in. 
 " School Laws, 1905, Sections 63-4. 
 " Maine School Report, p. 34. 
 " Maine School Report, p. 189. 
 
State Aid to High Schools 41 
 
 Wisconsin i^* Wisconsin was the second state in the Union 
 to provide monetary inducements for the establishment of rural 
 high schools. The first law was passed 1875, and provided 
 for the establishment of free high schools, giving a direct state 
 subsidy of one-half the amount expended for instructiort, not to 
 exceed $500.00 to any one school. The law was similar to that 
 passed by Maine two years earlier. In fact the Maine law was 
 without doubt the model upon which the Wisconsin law was 
 drawn.^' That this law was intended for the encouragement 
 of rural high schools at the time of its passage there can be 
 no doubt. "Although the High School Law was primarily de- 
 signed to bring to rural neighborhoods the two-fold advantages 
 of (i) a higher instruction than the common district schools 
 afford, and (2) a better class of teachers for these schools, it was 
 nevertheless, anticipated from the first that the immediate re- 
 sults of the law would be chiefly the improvement of existing 
 graded schools in the larger villages and in cities." ^* The number 
 of schools receiving state aid under this law the first year was 
 twenty, their enrollment was 1,284. By the end of the academic 
 year 1878-9, the number of schools had increased to eighty-eight, 
 the enrollment to 6,693, ^"d the total amount of state aid to 
 $25,000.00.^^ 
 
 The legislature of 1877 changed the high school laws making 
 the requirement that such schools be operated in buildings not 
 used for other school purposes. This law, however, never actu- 
 ally became operative, since the next legislature changed it and 
 provided for the payment of the state subsidy to which the schools 
 were entitled under the old act.^' The law was, however, in 
 effect long enough to affect the high schools of the state as is 
 shown by the fact that the number of high schools decreased 
 from 91 in 1879-80 to 78 in 1880-81. The enrollment for this 
 period also dropped from 6,730 to 5,393. 
 
 The laws created by the legislature of 1879 constitute the legal 
 status under which the free high schools of the state have since 
 
 "The latest available State Report was 1904-6. The latest available 
 School Laws were 1907. 
 
 " Report of State Superintendent of Wisconsin, 1874, p. XXIV. 
 " Report of State Superintendent of Wisconsin, 1876, p. 27. 
 " Report of State Superintendent of Wisconsin, 1879. 
 " Report of State Superintendent of Wisconsin, 1879, p. 20. 
 
42 State Aid to High Schools 
 
 been operated. Amendments to these laws have been made from 
 time to time as will be pointed out later. 
 
 These laws provided for the establishment of free high schools 
 in any town, in any two or more adjoining towns, in any incorpo- 
 rated village, in any city, or in any district containing an incorpo- 
 rated village or supporting a graded school of at least two 
 departments, provided there were at least twenty-five individuals 
 in the proposed unit of organization prepared to do high school 
 work.^" The law provided for a board of three members to 
 administer the affairs of the school. One member was to be 
 elected to this board each year, thus providing for a continuous 
 membership. Authority was given this board to grade the school 
 and provide a course of study under the direct supervision of 
 the State Superintendent.^" 
 
 The legislature of 1881 provided for the scholarship of prin- 
 cipals of such schools as follows : Principals must ( i ) be grad- 
 uates of some university, college or normal school; or (2) hold a 
 state certificate, or (3) pass an examination in all the branches 
 taught in any such school. ^^ 
 
 From the very inception of the law governing the establish- 
 ment and support of free high schools the various state superin- 
 tendents had advocated, through their reports, the passage of an 
 act to provide for a more adequate supervision of these schools.^^ 
 As a result of this growing demand the legislatures of 1883 and 
 1885 provided for this supervision by requiring that the superin- 
 tendent prepare a course of study and supervise such schools, 
 permitting him to call to his aid the professor of theory and art 
 of education in the university. This law also gave the State 
 Superintendent power to examine the teachers for these schools 
 as provided under the previous laws.^^ 
 
 A feeling had been gradually growing in the state that the 
 laws as existing did not to any considerable extent encourage the 
 establishment of rural high schools, and upon the suggestion of 
 the State Superintendent^* the legislature of 1885 passed a law 
 
 " School Laws of Wisconsin, 1890, Sections 90-1. 
 
 ^"The School Laws of Wisconsin, 1890, Sections 492-3. 
 
 " The School Laws of Wisconsin, 1881, Section 494. 
 
 '^ Report of State Superintendent of Wisconsin, 1879, p. 20, 1882, p. 24. 
 
 '' School Laws of Wisconsin, 1890. 
 
 " Report of State Superintendent of Wisconsin, 1884, p. 21. 
 
State Aid to High Schools 43 
 
 permitting the establishment of free high schools in towns or 
 adjoining towns having no graded schools.^" The act provided, 
 without limitation, for the payment by the state of one-half the 
 amount expended in any such school for instruction alone, and 
 appropriated for this purpose, $25,000 annually. 
 
 Up to 1889 but four towns claimed aid under this act, and 
 during the year 1887 one of these abandoned its school.^" This 
 result is scarcely to be wondered at, since a high school cannot 
 long survive in a region where the elementary schools are not in 
 a condition to prepare pupils for it. In view of the lack of demand 
 for the mass of the money appropriated for this special purpose, 
 the legislature of 1889 provided that the unapportioned balance 
 of this fund should each year be added to the $25,000 appro- 
 priated annually for the aid of free high schools established in 
 communities supporting graded school systems.^' 
 
 The same legislature provided for the appointment of an 
 assistant by the State Superintendent to aid him in the super- 
 vision of the free high schools.^' 
 
 In 1891 the legislature passed an act placing the certification of 
 all teachers of free high schools entirely in the hands of the State 
 Superintendent. 
 
 In 1895 the legislature passed an act providing for the estab- 
 lishment of manual training departments in high schools, and 
 appropriated $2,500 annually to be distributed in $250 lots to 
 such free high schools as maintained these departments. The 
 number of such departments provided for by the act was limited 
 to ten.^' By the end of the academic year 1897-98 the number 
 provided for in the act had been reached.^' To meet this situa- 
 tion the legislature doubled the amount of the annual appro- 
 priation for manual training departments in the high schools, thus 
 providing for twenty such departments in all. At the same time 
 the amount of the annual appropriation for free high schools was 
 increased to $100,000. This limited number having been pre- 
 viously reached the legislature of 1907 changed the law so that 
 it provided one-half of the amount expended in instruction in 
 
 " School Laws of Wisconsin, Section 496, — year 1890. 
 
 " Report of State Superintendent of Wisconsin, 1890, p. 15. 
 
 " Acts of 1889, State of Wisconsin, Chapter 426. 
 
 " School Laws, State of Wisconsin, 1897. 
 
 " Report of State Superintendent of Wisconsin, 1898. 
 
44 State Aid to High Schools 
 
 the subject not exceed in any one instance $250,000 for high 
 school grades, and not to exceed $350.00 in case the course in- 
 cluded the three upper grades in the grammar department. The 
 annual appropriation was increased to $25,000." 
 
 In 1903 the section of the laws relating to the estabUshment 
 of high schools in towns having no graded schools was amended 
 by striking out the clause " in towns not having a graded system 
 of schools."^^ 
 
 The immediate effect of this act was to cause the transfer of 
 three of the district free high schools to the town class, thus 
 enabling them to secure without limitation one-half of the amount 
 actually expended for instruction. 
 
 There were, in 1903-4 eight of these schools, by the end of the 
 following year the number had increased to eleven, and before 
 the 1904-6 report of the superintendent had gone to press eight 
 others had qualified, making a total of nineteen. According to 
 the statement of Superintendent Gary there is a distinct awaken- 
 ing of interest in the towns throughout the state which do not 
 as yet support high schools.'" 
 
 The largest amount received from the state by any one of these 
 high schools, for the year 1904-5, was $1,516.50, while the uni- 
 form maximum amount received by the various district free 
 high schools was for the same year $371.04." 
 
 In 1907 the section referring to township high schools was 
 amended by increasing the maximum amount available for this 
 type of school from $25,000 to $50,000 per annum.'* At no time, 
 however, in the history of these schools has the general appro- 
 priation for this purpose been entirely exhausted. On the other 
 hand the appropriations for the district type of free high school 
 have frequently been inadequate to meet the demands upon 
 the fund. 
 
 The Legislative Acts of 1901 as amended in 1903 provide for 
 the free tuition, in any high school of the state, of pupils who may 
 reside in a town or a village not supporting a high school of its 
 own. Provision is made for the payment of this tuition by the 
 
 '" School Laws, State of Wisconsin, 1907, Chapter 503. 
 
 " School Laws, State of Wisconsin, 1903, Section 496. 
 
 " Report of State Superintendent of Wisconsin, 1904-6, p. 96. 
 
 " Report of State Superintendent of Wisconsin, 1904-6, p. 277. 
 
 '* School Laws, 1907, Chapter 571. 
 
State Aid to High Schools 45 
 
 district in which the pupil may reside. The amount of such 
 tuition must not, however, exceed fifty cents per week. The 
 districts provide this money by direct local taxation. The total 
 amount of tuition received by all high schools in the state for the 
 academic year 1905-6 was $99,521.07. The proportion of this 
 amount paid by the various towns and villages, not supporting 
 high schools could not be ascertained, but there is no doubt 
 whatever that the law has had a very stimulating effect upon 
 the secondary schools of the state. State Superintendent Cary says 
 that the nonresident attendance in such schools was reported 
 as 4,142 in the year 1901-2, the last before the tuition law went 
 into effect; in 1906 it was 5,862, an increase of 41.5 per cent. 
 At the same time the total enrollment increased from 17,724 
 to 21,946, a gain of only 23.8 per cent.'" Another factor enters 
 here that Superintendent Cary takes no account of in this con- 
 nection. The influencing factor referred to, is that of the impetus 
 given to the elementary schools of the state through the legisla- 
 tion of 1891 in reference to the grading of these schools. The 
 operation of this law undoubtedly resulted in the preparation 
 of a much larger number of rural pupils for high school work. 
 
 It is perhaps worthy of note that the original intention of the 
 legislature in aiding high schools in Wisconsin, was only to aid 
 in the establishment of such schools and not in their actual main- 
 tenance. This is shown by the fact that the first act provided only 
 for the payment of a state subsidy to such schools for a period 
 of three years. The limit was then extended to five years, and 
 shortly after the expiration of this period it was again extended 
 to ten years and so on until the present time. There was a short 
 period during which the law actually lapsed, and the effect of 
 this together with some other legislation suggested elsewhere 
 is shown by the statistics of 1880-81. 
 
 Perhaps no single piece of legislation passed in Wisconsin in 
 recent years has had a more potent influence upon the rural high 
 schools of the state than that which provided for a state system 
 of graded schools. This act which was passed in 1901 resulted 
 not only in the preparation of many more elementary pupils in 
 the rural schools, but also resulted in an increased attendance 
 in the high schools located in rural communities. These state 
 
 " Report of State Superintendent, Wisconsin, 1904-6, p. loi. 
 
46 State Aid to High Schools 
 
 graded schools are permitted to do high school work at the 
 option of the communities supporting them, if the State Super- 
 intendent so permits. Thus provision is made for the gradual 
 development of the elementary school of any district, not having 
 high school facilities, into a high school district. 
 
 The above suggested law provides for the payment of state 
 subsidies to such graded schools as are not located in districts 
 with high school facilities. These schools are divided into two 
 classes as follows: First class schools must have at least three 
 departments, they must employ principals who have state certifi- 
 cates, and they may not employ more than one teacher each with 
 a third grade certificate, and one each with a second grade certifi- 
 cate. All others must hold either first grade certificates or state 
 credentials of some kind. Second grade schools must have two 
 or more departments and must employ principals with state 
 credentials or first grade certificates issued by the county superin- 
 tendents. Each such school must provide at least a nine months 
 term of instruction, and must have an average daily attendance 
 of at least fifteen pupils to entitle it to state aid. The board 
 of such schools must also provide proper buildings, furniture, 
 black-boards, globes, maps, and libraries to carry on the work. 
 
 The law further provides that the State Superintendent shall 
 appoint two inspectors to aid him in the supervision of these and 
 the free high schools of the state. It also provides that a uni- 
 form course of study must be prepared by the office of the State 
 Superintendent and that this course shall be adopted by these 
 schools. Under the provision of this act a minimum course has 
 been provided by the State Superintendent. Schools of the first 
 class receive $300.00 each, and schools of the second class receive 
 $100.00 each annually from the state. The state has provided 
 for these subsidies to high and graded schools by raising the 
 amount annually by a direct tax.'" 
 
 The legislature of 1907 amended this act so that it provides, 
 that a principal of a second class graded school shall be required 
 to hold a state certificate, or a first class county certificate and 
 have at least one year's successful experience, or that he shall 
 hold a second grade county certificate and have at least two 
 years' successful experience. The amount of state aid to schools 
 
 " Legislative Act, State of Wisconsin, 1901. 
 
State Aid to High Schools 47 
 
 f this class was also increased from $100.00 to $200.00 per 
 nnum.^' 
 
 Superintendent Cary in his report for 1904, says : " I attribute 
 : to results of the work accomplished in the graded schools, that 
 lore high schools have been established within the last two years 
 han any equal length of time in the history of the state."'* 
 
 For several years Wisconsin has had a law 'that permits the 
 onsolidation of rural schools and the transportation of pupils 
 t public expense. The law as enacted at first placed a limit 
 ipon the distance that pupils could be transported, but this part 
 (f the act was amended by the legislature of 1901. 
 
 In 1907 it was further provided that such school districts 
 s closed their schools and paid the tuition of their pupils in 
 ;raded schools or in the grammar departments of free high 
 chools and furnished free transportation to the same should 
 eceive annually from the state treasury the sum of $75.00.'* The 
 :ffect of this institution upon the rural high schools of the state 
 las not as yet been great, but its effect in the future will undoubt- 
 dly be tremendous, since many of these consolidated schools will 
 n time develop into rural high schools, others will give partial 
 ligh school courses, and all the others will sooner or later become 
 horoughly organized graded schools which will serve as feeders 
 o the high schools. 
 
 Wisconsin also provides for the establishment and partial state 
 upport of a limited number of county agricultural schools. The 
 )riginal act provided for the establishment of but two in the 
 tate. Any county or a combination of adjoining counties might 
 iccording to law establish one of these schools. The first two 
 chools meeting the requirements of the law were to receive from 
 he state treasury an amount equal to one-half of the amount 
 ictually expended for their maintenance from year to year. 
 Jnder this act two such schools were established. The legis- 
 ature of 1903 provided for the establishment of two more or 
 'our in all. Under this new act each of these schools was to 
 •eceive from the state an amount equal to two-thirds of the 
 imount expended for maintenance from year to year, provided 
 
 " State Laws of Wisconsin, 1907, Chapter 374. 
 
 " Report of State Superintendent of Wisconsin, 1903-4, p. 78. 
 
 •• Laws of Wisconsin, 1907, Chapter 553. 
 
48 State Aid to High Schools 
 
 that the amount appropriated by the state to any one school 
 should not exceed $4,000 for any one year. Four such schools 
 having been established, and applications for others having been 
 received by the state department, the legislature of 1907 pro- 
 vided four additional schools or eight in all.*" 
 
 It is quite evident that there is no disposition upon the part 
 of the legislature to limit the number of these schools. The 
 limitations imposed by the successive legislatures are necessary 
 to the provision of the funds for their maintenance. These 
 schools have so far provided but a two years' course, but they 
 would certainly have to be classed as secondary schools. 
 
 Another class of schools aided by the state, and which are 
 classed by some as secondary schools are the county training 
 schools for teachers. Ten of these were in existence in the state 
 during the academic year 1905-6. The mass of their attention 
 is given to a review of the subjects of the elementary school, so 
 that the question would at once arise as to whether they could 
 be classed as secondary schools. 
 
 All of the high schools of Wisconsin are classed as free high 
 schools except about fifteen known as independent high schools 
 and located in the large cities. These institutions of course re- 
 ceive no state aid, preferring to waive their right in this matter 
 in order that they may be independent of the regulations govern- 
 ing the free high schools. 
 
 The various reports of the state superintendents classify the 
 free high schools as three and four year schools. The three year 
 class shows a gradual decrease in number from 1892-3 to 1900-01, 
 and then a much more rapid decrease from the latter date to 
 1905-6, due in large measure to the direct state support of graded 
 schools. The number of such schools reported for the above 
 dates are 66, 54, and 10. Their enrollment has in round numbers 
 fallen from 3,000 to 2,000 and finally to 300, while both the 
 number and the total enrollment of the four year class have much 
 more than doubled in the same period. 
 
 The first class graded schools have increased from 118 in 
 1901-2 to 165 in 1905-6 and the second class from 154 to 219 
 during the same period. In 1903-4 nine of the above graded 
 schools became free high schools and in the following year twelve 
 others were also advanced to this grade. 
 
 *" Wisconsin School Laws of 1907, Chapter 540. 
 
State Aid to High Schools 49 
 
 In summing up the present status of the rural high schools of 
 Wisconsin we will quote Superintendent Cary at some length. 
 " The laws in our state give every facility for organizing high 
 schools. Almost any group of people, regardless of district 
 boundaries, may decide to organize as a free high school district. 
 The only conditions for securing state aid are that they must have 
 within the district twenty-five or more pupils prepared to take 
 up the high school work, as determined by the examination given 
 under the direction of the state superintendent, and must organize 
 and conduct the school according to statutory enactment. The 
 demand for high school privileges is rapidly growing, and every 
 year finds the interest in the demand for secondary education 
 spreading to the remote districts. The county high school has 
 not made any headway in Wisconsin, and probably will not do 
 so because of the fact that in nearly every community there 
 are already convenient high schools that serve the purpose. 
 Township high schools exist in about a dozen places in the 
 state. Many more would doubtless be desirable, but the idea has 
 thus far not met with a hearty response from the people. The 
 reason for this is that in most of the townships of the state there 
 are villages and small cities as centers of population. These 
 are frequently located on the edge or one comer of the township, 
 and consequently there are many inhabitants situated so far from 
 the high school building that it would be necessary, in case of 
 attendance of the children, to make arrangement for board and 
 lodging. They often claim that they may as well make arrange- 
 ments for attendance at high schools in the district, or for attend- 
 ance upon some of the state normal schools. Upon the whole, 
 the best thing we have found for extending high school privileges 
 and for stimulating country pupils to remain in school until they 
 have completed the common school course, and then moving to 
 the secondary schools, is the law requiring the township in which 
 the pupil resides to pay the tuition at the high school.*^ 
 
 Minnesota :" The agitation for state aid to high schools began 
 in Minnesota in the early seventies, but it did not result in any 
 
 *' Report of N. E. A., 1905, p. 239. 
 
 "The latest available State Report was 1904. The latest available 
 School Law was 1906, 
 
JO State Aid to High Schools 
 
 legislation until 1878. There is reason to believe that the State 
 Superintendent advocated a plan similar to that adopted by 
 Maine and Wisconsin,*' but the legislature departed slightly from 
 this. The law varied from that of these states in that it pro- 
 vided for a direct subsidy to such schools as met the require- 
 ments of the law, not binding them to any definite provision of 
 funds or expenditure for maintenance on their own part.** The 
 amount of the state subsidy provided by this act was $400.00 for 
 each school. This amount remained unchanged for more than 
 twenty years. To pay these subsidies the same act provided 
 $9,ooQ, but owing to the omission of the word " annually " in 
 said law it became inoperative after the first year. The follow- 
 ing legislature, however, remedied this defect. It will readily 
 be seen that this new departure of Minnesota gave more encour- 
 agement to the rural districts than did the laws of either Maine 
 or Wisconsin. This law was also superior in that it provided 
 for better supervision than did the law of Wisconsin. It required 
 that each school receiving state aid should have a regularly 
 constituted course of study that would prepare its graduates for 
 the sub-freshman year of the state university. It further pro- 
 vided that such schools should be inspected at least annually by 
 the high school board. Every evidence points to the fact that 
 these schools were originally created to fulfil the function of pre- 
 paratory schools for the state university.*^ 
 
 In 1 88 1 these laws were all revised, and the act passed at that 
 time practically forms the legal status upon which the high 
 schools of the present are organized. This act provided for an 
 ex-ofificio high school board consisting of the State Superin- 
 tendent, the Governor, and the President of the State University. 
 This board was given practically full power as regarded admis- 
 sion, courses of study, instruction, and the general administration 
 of such schools. It was also empowered to employ an assistant 
 examiner at a salary not to exceed three dollars per day, or fifty 
 cents per hour, providing such individual was not receiving an 
 additional salary from any state institution. All traveling ex- 
 penses incurred in such inspection were also provided for. The 
 
 *' Report of State Superintendent of Minnesota, 1878 and 1879. 
 
 ■" Acts of 1878, State of Minnesota, Chapter 92. 
 
 *' See Various Reports of State Superintendents, Title "High Schools." 
 
State Aid to High Schools 51 
 
 large administrative power vested in this board may be under- 
 stood by a perusal of the following law: 
 
 Powers of Board:*' The high school board shall have 
 full discretionary power to consider and act upon applica- 
 tions of schools for state aid, and to prescribe the conditions 
 upon which said aid shall be granted, and it shall be its duty to 
 accept and aid such schools only as will, in its opinion, if aided, 
 efficiently perform the services contemplated by law, but not 
 more than five schools shall be aided in each county in any one 
 year. Any school once accepted and continuing to comply with 
 the law and the regulations of the board, made in pursuance 
 thereof, shall be aided not less than three years. (1881, Ex. 
 Sess., C. 61, Sec. i, as amended 1883, C. 40, Sec. i.) 
 
 The above suggested board was required to have each school 
 applying for state aid inspected at least annually. The only 
 limitation of the powers of this board was as follows : 
 
 Conditions of Receiving:*' The said board shall require of 
 the schools applying for such pecuniary aid, compliance 
 with the following conditions, to wit: First — That there be 
 regular courses of study, embracing all the branches prescribed 
 as pre-requisite for admission to the collegiate department of 
 the University of Minnesota. Second — That the said schools 
 receiving pecuniary aid under this act shall at all times permit 
 the said board of commissioners, or any of them, to visit and 
 examine the classes pursuing the said preparatory courses. (Id. 
 Section 3.) 
 
 Under this act the law permitted the establishment of public 
 high schools in cities, incorporated villages, or townships. They 
 were required to admit pupils from any part of the state free of 
 tuition, provided that such pupils not residing in the districts 
 could pass an examination in all of the subjects required by law 
 as requisite for a third grade teacher's certificate. 
 
 As previously stated, the amount of state subsidy extended to 
 each of such schools as complied with this law was $400.00 annu- 
 ally. The annual appropriation for high schools at this time, 
 1 88 1, was $20,000. This amount was increased from time to 
 time to meet the demands of the constantly increasing number 
 of high schools. 
 
 " School Law of Minnesota, Title VII., Paragraph 171, 1891. 
 *' School Law of Minnesota, Title VII., Paragraph 165, 1891. 
 
52 State Aid to High Schools 
 
 No important changes were made in the laws of the state 
 relating to the high school problem until 1899 and 1901, when 
 three important acts were passed, by these two legislatures, which 
 have vitally affected the high schools of the state. The first of 
 these acts to receive attention was that of changing the law 
 which provided for state aid to elementary schools, the second 
 was that of changing the law which provided for the amount of 
 state aid to be extended to high schools, the third was that ot 
 making provision for the consolidation of rural schools, and the 
 free transportation of pupils at public expense. Some other 
 changes were made in the general high school law at this time, 
 as will be pointed out later. 
 
 The general act relating to high and graded schools entitled 
 to state aid, divides them into four classes as follows: State 
 high schools, state graded schools, state semi-graded, and state 
 rural schools.** 
 
 The law provides for the reorganization of the high school 
 board, as follows: The Governor is empowered to appoint a 
 superintendent or a high school principal to take his place upon 
 the board, the other two members to be the State Superintendent 
 and the President of the State University.** The act of 1905 
 increased this board to five, adding the President of the Board 
 of Normal School Directors and one other person to be appointed 
 by the Governor and ratified by the senate.'^" 
 
 The original act places the state graded schools under the 
 direct supervision of this board, and provides that said board 
 shall appoint an inspector of state high schools and also an in- 
 spector of state graded schools. The salaries of these inspectors 
 are to' be fixed by this board. Provision is also made for the 
 appointment, by this board, of a sufficient number of assistant 
 graded school inspectors, and their maximum salary is fixed 
 at three dollars per day or fifty cents per hour.°^ It is further 
 provided that in all state high or graded schools an optional 
 English or business course of study shall be offered and main- 
 
 ■"* School Laws of Minnesota, 1901, Title XX. 
 
 ^•School Laws of Minnesota, 1901, Title XX., Section 219. 
 
 '"School Laws 1907, Title XX., Section 219. 
 
 "School Laws 1901, Title XX., Section 220. 
 
State Aid to High Schools 53 
 
 tained in addition to the course or courses of study required for 
 admission into the university. The local board is, however, given 
 powrer to add or cut out studies in the English or business 
 course.^^ All state high schools must, in order to receive state 
 aid, maintain school for at least nine months in the year.^* The 
 examination required for nonresident pupils must be in the 
 branches taught in the eighth grade of the graded schools of 
 the state. 
 
 Each state high school was under the law of 1899 entitled to 
 $1,000 annually. It was, however, provided that, in case the 
 appropriation was not sufficient to supply the amount due the 
 schools, a pro rata apportionment of the available funds was 
 to be made. 
 
 No more than seven high schools may receive state aid in 
 any one county during any one year. A school which has com- 
 plied with the law is entitled to aid for a period of not less than 
 two years. Any graded school can at any time apply for promo- 
 tion to the high school status, and, if in the judgment of the 
 board of high school examination and inspection, it is entitled 
 to such rating, it may receive the amount apportioned to such 
 schools. In case there are already seven of these receiving aid 
 in the county it will be entitled to the place of the school first 
 having received such state aid.°* 
 Any public school in any town or village or any township graded 
 school"' not entitled to aid as a state high school may receive 
 $400.00 annually,^' if it maintains nine months of school, is well- 
 organized, and has at least four departments in charge of a 
 principal and teacher having such qualifications as may be re- 
 quired by the state board, provided such principal is a graduate 
 of the advance department of a state normal school, or the 
 academic or pedagogical department of some reputable college 
 
 "School Laws 1901, Title XX., Section 221. 
 
 " School Laws 1901, Title XX., Section 225. 
 
 •* School Law of Minnesota, 1901, Title XX., Section 228. 
 
 "The legislature of 1897 provided for the establishment of township 
 graded schools at local option and by local support. (Title XXI., School 
 Law of Minnesota, 1901.) Some aid was given by the state to graded 
 schools as early as 1897. The amount of state subsidy provided was 
 $200 to each school complying with certain conditions. 
 
 " School Law of Minnesota, 1901, Title XX., Section 229. 
 
54 State Aid to High Schools 
 
 or state university, or has a first grade certificate, or state pro- 
 fessional certificate.'*' 
 
 Each school is to be visited at least once each year by the 
 graded school inspector. The law provides other minimum re- 
 quirements similar to those for state high schools, and the state 
 high school board is the final judge as to whether they are 
 entitled to state aid. 
 
 Any common school district, or public school in any hamlet or 
 village, or any township graded school in the state not entitled 
 to state aid as a high or graded school may, — if it maintains eight 
 months of school each year, and if it supports at least two 
 departments under the supervision of proficient teachers, at least 
 one of whom holds a first grade certificate or a diploma from the 
 advanced course of a normal school, — receive $200.00 annually as 
 a direct subsidy from the state. These schools are under the direct 
 supervision of the county superintendent, but the general rules 
 and regulations under which they are administered are provided 
 by the State Superintendent.^* 
 
 Any common school district not located in a city, or incorpo- 
 rated village, and not entitled to state aid as a high, graded, or 
 semi-graded school may, if it maintains school eight months and 
 employs a teacher with at least a first grade county certificate, 
 receive as a direct subsidy from the state, $100.00.°" 
 
 Should the state appropriation at any time be too small to cover 
 the legal demands of any one of these classes of institutions, it 
 is provided that the fund shall be apportioned pro rata among 
 the several schools entitled by law to state aid. 
 
 In 1899 the appropriation for state high schools was fixed 
 at $85,000 annually. In 1901 this amount was increased to 
 $115,000. The same legislature appropriated for graded schools 
 $52,000 annually, for semi-graded schools $25,000 annually, and 
 for state rural schools $60,000 annually. In 1903 these annual 
 appropriations were again increased, for high schools to $217,000, 
 for graded schools to $79,000, for semi-graded schools to $67,000, 
 and for state rural schools to $100,000. 
 
 In 1903 the legislature raised the amount of the state subsidy 
 to high schools to $1,500, to state graded schools to $550, and 
 
 " School Law of Minnesota, 1901, Title XX., Section 230. 
 " School Laws of Minnesota, 1901, Title XX., Article IV. 
 " School Laws of Minnesota, 1901, Title XX., Article V. 
 
State Aid to High Schools 55 
 
 to semi-graded schools to $250. In 1902-3 the pro rata distribu- 
 tion of the amount appropriated for high schools amounted to 
 just $1,380, and in 1905-6 it amounted to $1,182. Up to and 
 including 1904 the graded schools received the full amount of 
 the subsidy. 
 
 A special subsidy is also paid by the state to such high schools 
 as provide for instruction in the common branches of the elemen- 
 tary school in a manner which shall be most helpful to persons 
 intending to teach such branches. The general provisions for 
 these courses rest with the state high school board. It is pro- 
 vided that the class pursuing these subjects shall consist of at 
 least eight members, and that a special teacher shall be employed 
 to teach these branches. The amount of the special subsidy to 
 each school complying with this act was, by the legislature of 
 1895, fixed at $500 per annum."" In 1903 the amount of this 
 subsidy was increased to $750 per annum. 
 
 The legislature of 1901 completed the scheme for the better 
 organization and administration of the state schools by permit- 
 ting the consolidation of districts and the transportation of pupils 
 at public expense."^ For the academic year 1902-3 seven counties 
 in the state spent for transportation of pupils $2,589.08. The 
 following year twenty-five counties spent $4,257.64 for the same 
 purpose."^ During the decade ending with the academic year 
 1905-6 there has been a constant and very rapid growth of 
 high schools in the state, the number increasing from 99 
 to 192. During the same period the enrollment in these 
 schools has slightly more than doubled, increasing from 11,038 
 to 22,106, and the number of graduates has also a little more 
 than doubled, increasing from 1,357 to 2,783. 
 
 Beginning with 1899- 1900, the number of graded schools has 
 increased from no to 145, and the number of semi-graded schools 
 has increased from 190 to 270. Semi-graded schools are being 
 continually promoted to graded schools, and graded schools are 
 likewise developing new high schools and being promoted to 
 that class. 
 
 '"School Laws of Minnesota, 1903, Title XX., Section 247. 
 
 " School Laws of Minnesota, 1901, Title XIX. 
 
 •* Report of State Superintendent, Minnesota, 1904, p. 12. 
 
CHAPTER VI 
 
 STATE AID TO HIGH SCHOOLS 
 
 THE MAINE SYSTEM AS MODIFIED BY NORTH DAKOTA, PENNSYL- 
 VANIA, FLORIDA AND MASSACHUSETTS 
 
 North Dakota:^ North Dakota has from its admission into 
 the Union provided for the organization of special district high 
 schools. The law provides that any district, containing four or 
 more common schools and having an enumeration of sixty or 
 more persons of school age residing therein, may organize itself 
 into a special district for high school purposes. These schools 
 were at first entirely supported by local taxation, but they were 
 in a general way under the supervision of the state and county 
 just as were the elementary schools. In 1895 the legislature 
 placed them under the supervision of a special high school board, 
 consisting of the Governor, the State Superintendent of Schools, 
 and the President of the State University. This board was 
 permitted to classify the schools, and place those reaching a 
 certain standard of efficiency in the class known as state high 
 schools. There was no premium placed upon entrance into this 
 class except that the graduates of such schools were permitted 
 to enter the university without special examination. The law 
 was in effect that of Minnesota except that it carried with it 
 no provision for state aid.^ 
 
 The above act was reconstructed by the legislature of 1899. 
 The high school board was empowered to classify the schools 
 into high schools of the first class, second class, and third class, 
 as follows : High schools of the first class were required to give 
 a minimum course of four years' work, as provided by said State 
 Board, and were entitled to receive from the state $175.00 annu- 
 ally. High schools of the second class were required to give a 
 minimum course of three years' work, as provided by said State 
 Board, and were entitled to receive from the state $140.00 annu- 
 ally. High schools of the third class were required to give a 
 
 ' The latest Law available was 1907. The latest State Report available 
 was 1905-6. 
 
 ' School Laws of North Dakota, 1897. 
 
State Aid to High Schools 57 
 
 minimum course of two years' work, as provided by said State 
 Board, and were entitled to receive from the state $100.00 
 annually.* 
 
 For the purpose of meeting these demands and to provide for 
 the expense of supervision, the legislature appropriated $4,000 
 annually. It also provided for a pro rata distribution of these 
 funds in case there was not enough to meet the demands of 
 the schools. 
 
 This law was taken from that of Minnesota, and differs from 
 the aforesaid act only in that it provides for three classes of high 
 schools and that it provides for only three high schools in any 
 one county. 
 
 In 1903 the legislature increased the appropriation for high 
 school aid to $10,000, and increased the amount of subsidy, for 
 schools of the first class to $400.00 annually, for schools of the 
 second class to $300.00 annually, and for schools of the third 
 class to $200.00 annually.* The following legislature, 1905, 
 increased the general appropriation for high schools to $25,000 
 annually, and provided that high schools of the first class should 
 receive $800.00 annually, and that high schools of the second 
 class should receive $600.00 annually. The act seems to have 
 made no provision for high schools of the third class.' 
 
 In 1907 the general appropriation was further increased to 
 $45,000 annually, and it was provided that high schools of the 
 first class should receive $800.00 annually, that those of the sec- 
 ond class should receive $500.00 annually, and that those of the 
 third class should receive $300.00 annually.' 
 
 The general effect of the high school law of North Dakota 
 may best be shown by quoting from the report of State Super- 
 intendent Stockwell for the year 1905-6.' 
 
 " There are now thirty-one first class schools with four year 
 courses and fifteen second class schools with three year courses, 
 receiving aid from the state. The number of first class schools 
 has doubled during the past two years. This is an indication of 
 splendid progress. The enrollment has greatly increased; the 
 
 ^ Legislative Acts of North Dakota, 1899. 
 ' Legislative Acts of North Dakota, 1903. 
 'Legislative Acts of North Dakota, 1905. 
 •Legislative Acts of North Dakota, 1907. 
 ' P. 24. 
 
58 State Aid to High Schools 
 
 equipment so far as laboratories go, has materially improved. 
 The standard of work is higher and the quality of teaching 
 better. The existence of the high school board has been amply 
 justified by the development of the high schools of the state." 
 
 Previous to 1 907-8 the general appropriations have not been 
 sufficient to meet the demands of all the schools, consequently 
 the funds have been distributed pro rata to those of the differ- 
 ent classes. 
 
 Pennsylvania:* In 1895 the legislature of Pennsylvania 
 passed an act permitting the establishment of rural high schools 
 in joint districts, in townships, and in joint townships. The act 
 provided for first, second, and third class high schools. First 
 class high schools were required to give a four years' course, 
 second class high schools were required to give a three years' 
 course, and third class high schools were required to give a 
 two years' course. 
 
 High schools of the first class were to receive from the state not 
 to exceed $800.00 per annum, those of the second class were to re- 
 ceive from the state not to exceed $600.00 per annum, and those 
 of the third class were to receive from the state not to exceed 
 $400.00 per annum. Owing to the fact that the legislature pro- 
 vided no funds for the payment of these subsidies, the act was 
 entirely inoperative up to 1901. It could not be definitely ascer- 
 tained whether this was due to neglect upon the part of the 
 legislature, or whether it was assumed that these subsidies would 
 be paid out of the regular state appropriation for public schools. 
 However this may have been, the State Superintendent did not 
 use any of the state public school fund for meeting these 
 obligations. 
 
 In 190 1 the legislature in its general appropriation for public 
 schools provided an item of $25,000 annually to meet these obliga- 
 tions. This amount was increased in 1903 to $50,000, and in 
 1905 to $100,000.' 
 
 Other serious defects in the law are the failure to provide for 
 adequate supervision, and legitimate classification. Practically 
 both supervision and classification are left with the local authori- 
 
 * The latest Laws and State Reports available were those of 1907. 
 •Legislative Acts of Pennsylvania, 1895, 1901, 1903, and 1905. 
 
State Aid to High Schools 59 
 
 ties. The law does, however, provide that at least one teacher 
 must be employed who is capable of teaching all of the subjects 
 commonly classified as secondary. One is naturally led to wonder 
 how many of these schools are complying with the letter of the 
 law in this matter. 
 
 The most serious defect in the workings of this law in Pennsyl- 
 vania is after all the failure of the legislature to provide sufficient 
 funds to carry out its obligations to these schools. When a suffi- 
 cient appropriation has not been made to meet their legal de- 
 mands a pro rata apportionment is made. The available funds 
 have never been sufficient to pay the whole amount allowed by 
 law, and these funds have not been increased in proportion to the 
 increase in the number of schools entitled to state aid, and as a 
 result of this, the schools never know what to expect in the way of 
 such aid. A sudden increase in the number of the schools en- 
 titled to this aid invariably results in a large decrease of 
 available funds. Some notion of the workings of this law may 
 be secured by reference to the following table : 
 
 
 
 
 TABLE I^" 
 
 
 
 
 
 Rural High School Statistics 
 
 
 
 
 
 Pennsylvania 
 
 
 
 Year 
 
 Number 
 first class 
 
 Amount 
 received 
 
 Number 
 second class 
 
 Amount 
 received 
 
 Number 
 third class 
 
 Amount 
 received 
 
 1902 
 
 I 
 
 $600 00 
 
 39 
 
 $450 00 
 
 36 
 
 $300 00 
 
 1903 
 
 6 
 
 328 CO 
 
 50 
 
 246 00 
 
 65 
 
 164 00 
 
 1904 
 
 9 
 
 480 GO 
 
 53 
 
 360 00 
 
 lOI 
 
 240 00 
 
 1905 
 
 II 
 
 424 CO 
 
 52 
 
 318 CO 
 
 135 
 
 212 00 
 
 1906 
 
 12 
 
 760 GO 
 
 43 
 
 570 00 
 
 179 
 
 380 DO 
 
 1907 
 
 13 
 
 600 00 
 
 44 
 
 450 CO 
 
 244 
 
 300 GO 
 
 Notwithstanding the uncertainty of the amount of state aid to 
 be expected, the growth in the number of these schools has been 
 remarkable, and with a more liberal appropriation and an in- 
 creased subsidy to the various classes of schools an equally rapid 
 development in their efficiency would undoubtedly occur. 
 
 In 1903 an act passed the legislature permitting children re- 
 siding in a school district where graded schools exist to attend 
 
 '° Reports of State Superintendent, 1902-1907. 
 
6o State Aid to High Schools 
 
 a school of a higher grade in an adjoining district at the expense 
 of the board of education in the district wherein they reside. 
 Four years later another act was passed which referred directly 
 to high schools and high school pupils, and which provided for 
 free tuition, and for free text books at the expense of the district 
 in which the attending pupils reside.^^ 
 
 Florida :^^ The Florida legislatures of 1903 and 1905 pro- 
 vided for the extending of state aid to two classes of high schools 
 and to rural graded schools.^' The original bill carried with it 
 provision for a state inspector of high schools, but this was 
 unfortunately lost during the passage of the bill and the work 
 was delegated to the office of the State Superintendent of Schools 
 with no provision for extra assistance. The act, in addition to 
 making some general requirements for the classification of such 
 schools, provides for their general regulation by the state board 
 of education. The superintendent was also empowered to appoint 
 a committee to act with him in the preparation of a course of 
 study for state high schools. 
 
 A senior high school is a graded school having a four year 
 high school course, as provided by the state board of education. 
 A junior high school is a graded school having at least a two 
 year high school course, as provided by said state board. A 
 rural graded school is a school, located at least three miles 
 distant from any town or city of more than five hundred inhabi- 
 tants, providing instruction in both the intermediate and grammar 
 grades during eight months of the year, and conducted by two 
 or more qualified teachers in buildings with suitable equipment 
 owned by the district. The state board also provides that each 
 such school must have an average attendance of at least fifty 
 pupils. This latter requirement was, however, waived for the 
 academic year 1903-1904, because of an epidemic of contagious 
 disease. The act also provides that no school shall receive state 
 aid under more than one of the above classifications. It is pro- 
 vided that senior high schools may receive $6oo.cX) per annum, 
 that junior high schools may receive $360.00 per annum, and 
 that rural graded schools may receive $200.00 per annum. The 
 
 " School Laws, Pennsylvania, 1907, Sections CXLIII. and CXV. 
 ''The latest Laws available were those of 1907. The latest State 
 Reports available were those of 1905-6. 
 
 •^Legislative Acts, 1903, Chapter 5206; 1905, Chapter 5382. 
 
State Aid to High Schools 6i 
 
 law provides that this subsidy shall be paid to these schools for 
 a period of at least three years. The total annual appropriation 
 made by the legislature to meet these demands was $50,000.^* 
 This amount was increased in 1907 to $65,000.^° 
 
 The stimulating effect of this law may be readily seen when 
 we observe the increase in the number of high schools during the 
 first year of its operation. According to statistics compiled by 
 the writer from the reports of the various county superin- 
 tendents,^' the number of high schools in the state in 1903 was 
 only 48, but during the following year 33 others were organized. 
 As will appear from the statistics to follow, these schools did not 
 all receive state aid as high schools. Some of them were probably 
 adjudged below grade, but undoubtedly most of them at the 
 present time are receiving such aid, and in all probability all of 
 them have increased their standards of efficiency. 
 
 The following figures^' will clearly show that these schools 
 are constantly advancing from class to class. The numbers of 
 first grade high schools for the years 1904, 1905 and 1906 were 
 26, 30, and 41. The numbers of second grade high schools for 
 the same year were 47, 56, and 65. The numbers of rural 
 graded schools were 43, 52, and 41. Thus it will appear that 
 the first grade high schools have increased more than 57 per cent, 
 in two years, and that the second grade high schools have in- 
 creased more than 38 per cent, during the same period. 
 
 The consolidation of schools and the free transportation of 
 pupils antedate the laws for state aid to high and graded schools, 
 and this factor no doubt entered, in some degree, into the rapid 
 development of high and graded schools in rural districts. A 
 consolidation of schools, and the free transportation of pupils 
 have occurred in somewhat more than one-half of the counties 
 of the state.^* 
 
 Massachusetts :^° Massachusetts occupies rather a peculiar 
 position in the history of American education. She has always 
 
 " Report of State Superintendent of Florida, 1904. 
 
 " Legislative Acts, Florida, 1907. 
 
 •• Report of State Superintendent, 1904, pp. 241-371. 
 
 " Reports of State Superintendent, 1904-5-6. 
 
 " Report of State Superintendent of Florida, 1904, pp. 248-371. 
 
 " The latest Laws and State Reports available have been those of 1907. 
 
62 State Aid to High Schools 
 
 recognized the need of popular education and has secured it 
 largely by compulsory legislation, forcing the various towns to 
 comply with these laws to the extent of their various capacities, 
 if indeed, she has not overburdened some of them. Her method 
 has been to pass a compulsory law and then when the various 
 sections have adjusted themselves to these conditions pass 
 another pressing them still further. 
 
 The great state of Massachusetts has not until recent years 
 recognized her full responsibility in matters of public education. 
 While she has always led in placing a high educational standard 
 before the country, she has done very little as a commonwealth 
 toward the bearing of the actual burden of free public education. 
 Within her borders many have been offered the very best educa- 
 tional opportunities, while on the other hand many others have 
 been offered but the poorest of such opportunities. 
 
 In the further discussion of this subject we shall quote directly 
 from Frank A. Hill, sometime secretary of the Massachusetts 
 State Board of Education. 
 
 " The year 1824 saw low water mark in our educational 
 history. There were 172 towns that should have been supporting 
 grammar schools under the law of 1789. Very few of them 
 were, however, doing so. Accordingly the legislature exempted 
 all towns under 5,000 inhabitants from maintaining them. That 
 is to say, it exempted 165 of those 172 towns, all of them but 7. 
 It was no longer only 100 families in the town, as in 1647, no 
 longer 200 families, as in 1789, but practically 1,000 families, 
 that created the obligation to maintain a grammar school. Thus 
 the grammar school was nearly extinguished and its very name 
 began to fade in oblivion. The altar fires of high ideals, however, 
 were kept alive in the academies. It was the very success of 
 these academies that, in a way, checked their growth and led, 
 with some notable exceptions, to their reduced importance or 
 their demise. It was largely because of them that the demand 
 for free secondary education revived. It became a burning ques- 
 tion everywhere, Why should not the children of all the people 
 enjoy advantages equal to those of the favored few?" 
 
 " The reaction from the legislation of 1824 came quick and 
 sharp. In 1826 the legislature ordered that towns of 4,000 
 people should maintain a high school of the first grade: towns 
 
State Aid to High Schools 63 
 
 of 500 families, a high school of the second grade. Here was a 
 partial return to the policy of the fathers, the beginning of educa- 
 tional repentance. The original difference between the two 
 grades was that the first taught Latin and Greek while the second 
 did not; the first connected with the colleges in the traditional 
 way, the second ignored the colleges and was ignored by them. 
 And now for some years the policy of the State was singularly 
 vacillating. There was a locking of horns between the pro- 
 gressive party and the conservative. The law of 1826 had been 
 in force but a short time when the requirement of a second 
 grade high school in the case of towns with 500 families was 
 repealed; in 1836 it was restored; in 1840 it was practically 
 repealed again ; and in 1848 it was restored again, this time to 
 stay until another advance became possible. So we see 
 that it took just twenty-two years to clinch the legis- 
 lation of 1826. 
 
 " For many years after 1826 the high school outlook was far 
 from encouraging. The law was explicit enough, but towns con- 
 sulted their pleasure about obeying it. In 1838, for instance, out 
 of 43 towns required to maintain high schools only 14 were 
 doing so. But the upward movement, long delayed, began at 
 last. The missionaries of the movement were Horace Mann and 
 his fellow-workers. In 1852 there were 64 high schools; in 
 1866, 156; in 1876, 216; in 1886, 229; to-day there are 261. 
 
 " In 1891 the State took a step which placed it, for the first 
 time, in advance of the policy of the founders. It ordered that 
 free high school tuition thereafter should be the legal right of 
 every properly qualified child in the Commonwealth. Every 
 town, without exception, must furnish it either in its own high 
 school or in that of a neighbor. Other States have gone beyond 
 Massachusetts in making the college or university a part of the 
 public school system, but Massachusetts was the first State in 
 the Union, if not the first in the world, to make it compulsory 
 on its towns to provide free high school instruction. Such 
 compulsion bore with hardship, of course, on many small and 
 feeble towns. Hence the policy in such cases of State reimburse- 
 ment of high school tuition payments."^" 
 
 " Report of the Board of Education of Massachusetts, 1897-8, pp. 
 366-8. 
 
64 State Aid to High Schools 
 
 As suggested in the above quotation the poorer towns could 
 not well meet the demands of the law of 1891 which required 
 them to pay the tuition of pupils in case they did not provide a 
 high school of their own. As a result the legislature of 1895 
 passed its first law reimbursing these poorer towns to the extent 
 of the amount they had expended for the tuition of their children 
 in outside high schools of a rank satisfactory to the State Board 
 of Education. The law provided that towns with a property 
 valuation of less than $500,000, and having no high school of 
 their own, should upon application to the proper authorities, 
 receive reimbursements from the state in the amounts actually 
 expended in the payments of the tuitions of pupils in the towns 
 who were in attendance upon neighboring high schools. The law 
 further provided that the town could, if it so desired, pay for the 
 transportation of pupils to and from such high school or schools. 
 This same legislature passed an act permitting towns having 
 no high schools of their own to pay the tuition of their children 
 in any academy located within their boundaries, provided such 
 academies had been approved by the State Board of Education."^ 
 
 This period marked a new departure in the state's policy 
 toward secondary instruction. Previous to this time she had 
 tried both encouragement and force, but now she began the 
 policy of extending financial support to the institution. 
 
 Mr. Hill continues as follows: "In 1898 the legislature 
 abolished the distinction between first grade high schools and 
 second, the people having previously abolished it in most towns. 
 The aims of the high school were for the first time specifically 
 stated, — to give such instruction as may be required for general 
 purposes of training and culture as well as to prepare pupils for 
 admission to the state normal schools, to high technical schools 
 and to colleges. The length of the high school curriculum was for 
 the first time fixed; there must be at least one course four years 
 long. And to ease somewhat the burden of this newly defined 
 high school upon "the small towns, it was made permissible for 
 them to arrange that a portion of the high school instruction 
 may be given in the high school of another town. A town, for 
 instance, may maintain a high school for a part of the course if 
 it will pay for the rest of the course elsewhere."^' 
 
 " Legislative Acts of State of Massachusetts, 1893- 
 
 " Report of the Board of Education of Massachusetts, 1897-8, p. 368. 
 
State Aid to High Schools 65 
 
 In 1902 Massachusetts took the final step in the recognition 
 of the principle of state aid to secondary education. The new law 
 is in effect about as follows: Any town supporting less than 
 500 families and having a property valuation of less than 
 $750,000 is entitled to receive from the state treasury the entire 
 amount expended for the payment of the tuition of all children 
 of the town in attendance upon neighboring high schools ; a town 
 supporting less than 500 families and having a property valua- 
 tion to exceed $750,000 is entitled to receive from the state 
 treasury one-half of all moneys expended for tuition of all chil- 
 dren of the town in attendance upon neighboring high schools; 
 and a town of less than 500 families maintaining a high school 
 of the approved type, employing two or more teachers is entitled 
 to receive $300.00 annually from the state treasury. It is pro- 
 vided, however, that no town the valuation of which averages 
 a larger sum for each pupil in the average membership of its 
 public schools than the corresponding average for the common- 
 wealth shall receive any moneys from the commonwealth under 
 ' the provisions of this act.^' 
 
 In 1906 the amount of the direct subsidy to high schools was 
 increased from $300.00 to $500.00 per annum.^* 
 
 A school employing less than two teachers is under this act 
 not entitled to receive any state aid. The intention of this is 
 undoubtedly to hinder the organization of high schools employ- 
 ing but one teacher, the educational authorities deeming it 
 impossible for one teacher to teach effectively all of the subjects 
 of a four year high school curriculum. This provision is prob- 
 ably wise in so far as it relates to the four year high school, but 
 the wisdom of compelling the town to give a four year course 
 in order to receive state aid is to be questioned. Most of the 
 high schools of the country have passed through the one, two and 
 three year stages of development. 
 
 As stated elsewhere towns containing 500 families are required 
 to maintain high schools and other towns may do so and, in case 
 they meet certain requirements, may receive annually state aid in 
 the form of a $500.00 subsidy. 
 
 2' Revised Laws of Massachusetts, Chapter 43, Section 3, as annotated 
 by Chapter 443, Acts of 1902. 
 
 ^* Legislative Acts, 1906, Chapter 200, State of Massachusetts. 
 
66 State Aid to High Schools 
 
 Twenty-six towns received the state grant in 1903, thirty-four 
 received it in 1904, thirty-six received it in 1905, thirty-seven 
 received it in 1906, and forty received it in 1907. The whole 
 amount expended by the state, for the above, in 1907 
 was $20,000. 
 
 All towns not maintaining high schools are required to make 
 provision for high school instruction in other towns, and are 
 under certain conditions previously stated, reimbursed for one- 
 half or the whole amount of the cost of such instruction. 
 
 In 1907 the state reimbursed 97 towns for tuition paid for 
 1,061 pupils. Twenty of these received but one-half of the 
 amount expended for tuition. The whole amount expended by 
 the state upon this account was, for the year, $36,613.94. 
 
 Twenty-four towns had a valuation per pupil in excess of the 
 state average and were consequently not reimbursed. Twenty 
 towns did not avail themselves of the law, but ten of these main- 
 tained high schools of their own without state aid or had the 
 benefit of local academies. Eleven towns in the state in 1907 
 had no pupils in the high school. These towns contained 712 
 children between the ages of five and fifteen, or probably con- 
 siderably more than 300 of high school age. 
 
 The tuition rates for the year 1907 varied from $20.00 to 
 $79.30 per pupil. The average rate was $42.07. 
 
 " That the difference in rate represents fairly the diflference 
 in the value of the instruction furnished must be doubted. Some 
 of the charges are certainly too high for the advantages offered, 
 and the Board of Education will be compelled in the near future 
 to bring about some readjustment of these rates."^'* 
 
 " Report of the Board of Education, Massachusetts, 1907, p. 136. 
 
CHAPTER VII 
 
 STATES THAT USE OTHER THAN THE DIRECT SUBSIDY 
 
 PLAN IN THE DISTRIBUTION OF STATE AID 
 
 TO HIGH SCHOOLS 
 
 CALIFORNIA, NEW YORK, RHODE ISLAND AND WASHINGTON 
 
 California:^ The history of the development of rural high 
 schools in California properly dates back to 189 1 when the legis- 
 lature passed a bill permitting a union of districts for high 
 school purposes. 
 
 Mr. J. B. McChesney points out the fact that there was some 
 recognition of the necessity for universal secondary educational 
 opportunities as early as 1851. He quotes as follows from the 
 proceedings of the legislature of 1851 ■? 
 
 "Article II, Section 5 : Not less than 60% of the amount paid 
 each district shall be expended in teachers' salaries; the balance 
 may, at the discretion of the district, be expended in building or 
 repairing school houses, purchasing a library or apparatus for the 
 support of a high school." 
 
 He states further, that he could find no evidence of the exist- 
 ence of a high school at this time and that the following legisla- 
 ture enacted a new school law which made no mention of 
 high schools. 
 
 The same authority goes on to state that, " In 1855 the school 
 law was enacted for a third time under the following title : 
 'Act to establish, support and regulate common schools and re- 
 peal former acts concerning the same.' Section 17 defined the 
 duties and powers of trustees as follows :" 
 
 " They may cause the common schools within their respective 
 jurisdictions to be divided into Primary, Grammar, and High 
 School Departments, and employ competent teachers for the 
 instruction of the different departments, whenever they may deem 
 such division advisable, provided there be sufficient means for 
 all departments, and if not, then in the order in which they are 
 herein named, Primary School having preference." 
 
 ' The latest Laws available were those of 1907. The latest State 
 Reports available were those of 1906. 
 
 ' J. B. McChesney, Monographs on Education in California. 
 
68 States that Use Other than the Direct Subsidy Plan 
 
 The fact remains, however, that but few high schools were 
 organized while this law was in operation and these only in the 
 large cities. It is quite probable that most of the towns and 
 cities found it difficult enough to raise sufficient money to sup- 
 port primary and grammar schools without attempting to support 
 high schools, though the law did permit the use of any excess 
 state funds for the purpose. According to McChesney the above 
 law remained in force for about seventeen years, there being no 
 effective changes made until 1872. 
 
 The new constitution, adopted 1879, explicitly provided that 
 the state school funds could not be used for high school purposes. 
 Article IX, Section 6 reads as follows:* 
 
 The public school system shall include primary and grammar 
 schools, and such high schools, evening schools, normal schools, 
 and technical schools as may be established by legislature, or by 
 municipal or district authority; but the entire revenue received 
 from the state school fund, and the state school tax shall be 
 appHed exclusively to the support of primary and grammar 
 schools. 
 
 This legalized the establishment of high schools by both munici- 
 palities and districts which, in practice however, only affected 
 municipalities, since the smaller districts were exhausting all 
 their efforts in supporting the primary and grammar schools. 
 It is probably worthy of note that for many years in California 
 the primary and grammar schools taken together covered a 
 period of nine years which practically included one year's high 
 school work. This enabled the municipality or district to use 
 the state funds for at least this one year of the high school course. 
 
 As in many of the other states the normal schools of Cali- 
 fornia have to at least some extent served as rural secondary 
 schools. The first of these schools was established as early 
 as 1862 and was at first located in San Francisco.* In 1870 
 it was moved to San Jose, its present location. While located in 
 the larger city it did not serve to any great extent as a secondary 
 school for rural pupils, but when located in San Jose at the 
 time the centre of the most thickly populated agricultural region 
 of the state it certainly gave secondary educational opportunities 
 
 ' Constitution of California, 1879, Article IX., Section 6. 
 
 ■* History of the State Normal School at San Jose, California, 1889. 
 
States that Use Other than the Direct Subsidy Plan 69 
 
 to a large number of rural youth. The state now supports five 
 normal schools well distributed over the territory. One of these, 
 only, never admitted pupils direct from the grammar schools. 
 Another ceased to do so only after 1900, another two or three 
 years later, and the remaining two still admit them to prepara- 
 tory courses. This raising of requirements for admission has 
 advanced just in proportion as high school privileges have been 
 extended in the regions where such schools are located. 
 
 Many communities, feeling the need of a more advanced educa- 
 tion than that provided by the grammar school proper, sought 
 to extend and did extend the work by the addition of a course 
 known as the " grammar school course." This institution was 
 in effect a sort of high school and even went so far as to prepare 
 students for the state university. The institution was undoubt- 
 edly created as such to avoid the constitutional provision which 
 prohibited the use of any part of the state funds for the support 
 of high schools. 
 
 The attitude of the legislature toward these " grammar school 
 courses " is shown by the act of 1887. This session amended 
 Chapter CVII, Section 444 to read as follows : 
 
 The state controller must between the dates aforesaid, also 
 estimate the amount necessary to raise the sum of three dollars 
 for each pupil enrolled in the grammar school course in the 
 several districts of the state where such course is taught. This 
 amount to be in addition to the amount above prescribed. The 
 amount so raised shall constitute the Grammar School 
 Course Fund. 
 
 Section 1625 of the same chapter reads : 
 
 Trustees of school districts, where the grammar school course 
 is taught, shall admit in such course all persons as follows : 
 
 1. Residents of the district who were enrolled in the gram- 
 mar grade. 
 
 2. Graduates in the grammar grade of schools in the county. 
 
 3. All others, residents of the county, who pass the required 
 examination. 
 
 The creation of this law was undoubtedly intended; first, to 
 give a legal status to these schools which had been illegally using 
 state funds for their support; second, to provide means whereby 
 such schools might legally receive state aid without causing any 
 decrease in the current state fund for the support of the lower 
 schools. The recognition of such schools as Grammar School 
 
70 States that Use Other than the Direct Subsidy Plan 
 
 Courses rather than as high schools was undoubtedly to avoid 
 the constitutional provision under Article IX, Section 6 as quoted 
 above. This is evidenced by the fact that the legislature of 1891, 
 under pressure, repealed the act as being unconstitutional. 
 
 The same legislature in two separate acts^ provided for; first, 
 the establishment of one or more county high schools in each 
 of the counties of the state, by submitting the matter to the 
 legal voters of the county a majority of whom could establish 
 and provide for the maintenance of the same; second, the estab- 
 lishment of high schools in towns or cities of fifteen hundred or 
 more inhabitants, or in two or more adjoining districts by sub- 
 mitting the proposition to the legal voters of the city or town or 
 union of districts, a majority of whom could establish and pro- 
 vide for the maintenance of the same. 
 
 Dr. Cubberley states that there were but twelve high schools 
 in California in 1885, and but twenty-four in 1890. He further 
 states that this number had increased to one hundred and twenty 
 by the year 1900.* In considering the growth of these schools 
 in California it must be remembered that many of them grew out 
 of the institutions known as the " grammar school courses " 
 that were carried on in the state previous to the legislation of 
 1 89 1 which practically made them illegal. According to McChes- 
 ney the number of high schools in the state had increased in 
 1902 to one hundred and thirty-nine, and in 1903 to one hundred 
 and forty-three.' 
 
 Attendant upon the entire local support of high schools as 
 provided by the enactment of 1891, there gradually grew up a 
 strong sentiment for some legislation leading to the state aid of 
 secondary schools. This agitation resulted in the legislature 
 of 1 90 1 submitting to the people an amendment to the consti- 
 tution of the state, the aim of which was to legalize the state 
 provision for the support of high schools through the levying of 
 a high school tax. At the general election of 1902 this amend- 
 ment was adopted by the people by an overwhelming majority. 
 As a consequence the legislature of 1903 passed an act for the 
 
 'Amendment to the Codes, 1891, Chapters LXI. and CXXXII., 
 California. 
 
 ' Cubberley, School Funds and Their Apportionment, p. 23. 
 
 ' McChesney, Monograph on Education in California, Secondary- 
 Education, p. 15. 
 
States that Use Other than the Direct Subsidy Plan 71 
 
 state support of high schools. Section i and Section 5 of this 
 act read as follows: 
 
 Section i.* There is hereby levied annually for the fifty-fifth 
 and fifty-sixth fiscal years, ending respectively June thirtieth, 
 nineteen hundred and four, and June thirtieth, nineteen hundred 
 and five, an ad valorem tax of one and one-half cents upon every 
 hundred dollars of the value of the taxable property of the state, 
 which tax shall be collected by the several officers charged with 
 the collection of state taxes, in the same manner and at the same 
 time as other state taxes are collected, upon all and any class of 
 property, which tax is for the support of regularly established 
 high schools of the state. And it is further enacted that, begin- 
 ning with the fifty-seventh fiscal year, to wit: July first, nineteen 
 hundred and six, it shall be the duty of the State Controller, annu- 
 ally, between the tenth day of August and the first day of Septem- 
 ber, at the time that he is required to estimate the amount 
 necessary for other school taxes, to estimate the amount neces- 
 sary to be levied for the support of high schools. This amount 
 he shall estimate by determining the amount required at fifteen 
 dollars per pupil in average daily attendance in all the duly es- 
 tablished high schools of the state for the last preceding school 
 year, as certified to him by the State Superintendent of Public 
 instruction. This amount the State Controller, between the dates 
 above given, must certify to the State Board of Equalization. 
 
 Section 5.* The money in said State High School Fund shall 
 be apportioned to the high schools of the state by the State 
 Superintendent of Public Instruction in the following manner: 
 He shall apportion one third of the annual amount among the 
 county, district, city, union, or joint union high schools of the 
 state, irrespective of the number of pupils enrolled or in average 
 daily attendance therein, except as hereinafter provided; the 
 remaining two thirds of the annual amount he shall apportion 
 among such schools pro rata upon the basis of average daily at- 
 tendance as shown by the official reports of the County or City 
 and County Superintendents for the last preceding school year ; 
 provided, that such high schools have been organized under the 
 law of the state, or have been recognized as existing under the 
 high school laws of the state and have maintained the grade of 
 Instruction required by law of the high schools ; and provided, 
 that no school shall be eligible to a share of said State High 
 School Fund that has not during the last preceding school year 
 employed at least two regularly certificated high school teachers 
 for a period of no less than one hundred and eighty days with 
 no less than twenty pupils in average daily attendance for such 
 
 ' School Law of California, 1903, p. 61. 
 
 • School Law of State of California, 1903, p. 62. 
 
-J 2 States that Use Other than the Direct Subsidy Plan 
 
 length of time, except in newly established high schools wherein 
 the minimum average daily attendance for the first year of one 
 hundred and eighty days may be but twelve pupils and but one 
 teacher ; and provided, that before receiving state aid, each school 
 shall furnish satisfactory evidence to the Superintendent of Pub- 
 lic Instruction of the possession of a reasonably good equipment 
 of building, laboratory, and library, and of having maintained, 
 the preceding school year, proper high school instruction for a 
 term of at least one hundred and eighty days; provided further, 
 that the foregoing provisions relating to the average daily at- 
 tendance and the number of teachers employed shall not operate 
 to disqualify any legally established high school existing at the 
 date of the passage of this Act from receiving a share of said 
 State High School Fund until July i, 1904. 
 
 Section 8 provides that the above fund may be used only for 
 the payment of the salaries of teachers.^" 
 
 Section 9 provides that high schools receiving state aid shall 
 within one year after first beginning to receive such aid, provide 
 at least one course of study such as will prepare pupils for 
 admission to one of the colleges of the University of California, 
 and in order that this purpose may be carried out the said high 
 schools shall be subject to inspection by a duly accredited repre- 
 sentative of said university. This section also provides that 
 pupils qualified to enter a high school and residing in a territory 
 wherein no high school exists shall have the right to attend any 
 high school that receives state aid without the payment of a 
 tuition fee, if such schools have room or accommodations 
 for them. 1° 
 
 The latter provision, during the two years it was in effect, 
 led to much dissatisfaction in certain communities, supporting 
 large and reputable high schools surrounded by thickly popu- 
 lated regions without high school facilities. As a result the 
 legislature of 1905 amended this law so as to provide that in 
 the future no high school receiving state aid should charge any 
 pupil residing outside of said high school district a tuition fee in 
 excess of the difference between the cost per pupil for the mainte- 
 nance of such school and the amount per pupil received during 
 the school year from the state. ^^ 
 
 That part of the law requiring every high school receiving 
 state aid to provide at least one course of study such as would 
 
 '" School Law of State of California, 1903, p. 64. 
 
 " Senate Bill No. 266, Sections i and 9, Session of 1905, Cailfomia. 
 
States tltat Use Other than the Direct Subsidy Plan 73 
 
 admit its graduates to one of the colleges of the university was 
 also stricken out in 1905.^^ 
 
 Section 1 was amended by the same legislature as follows:^' 
 After July first nineteen hundred and five, the amount of state 
 high school tax to be levied is to be determined by calculating 
 fifteen dollars per pupil in average daily attendance in all the 
 duly established high schools of the state for the last preceding 
 school year. 
 
 The amount of the direct bonus received from the state by each 
 of the accredited high schools was for 1904, $543.93. The 
 amount apportioned upon the average daily attendance basis 
 was for the same year about $11.18 per pupil.*^ This would 
 amount to a little over $1,000 for a school having an average 
 daily attendance of forty-one pupils. 
 
 There were in California, 1903, one hundred and forty-three 
 high schools entitled to receive state aid. Of these thirty-seven 
 were joint or union high schools, seven were county high schools, 
 and the remainder were town or city high schools.^* In 1906 the 
 number of union high schools had increased to twelve, and the 
 number of county high schools had increased to fifteen.^" 
 
 I'^or the academic year 1905-6 each high school in the state 
 received as a direct bonus the sum of $502.68. The amount 
 apportioned upon the basis of average daily attendance was $8.51 
 per pupil.^* Upon this basis a high school to receive $1,000 
 per year from the state would have to have an average daily 
 attendance of a little more than fifty-eight pupils. 
 
 New York:^' The laws of New York provide for the estab- 
 lishment of union free schools by a majority vote of the qualified 
 electors of the school district or districts at a meeting or meetings 
 called especially for that purpose.^' Provision is also made under 
 
 " Senate Bill No. 266, Sections i and 9, Session of 1905, California. 
 
 " Cubberley, School Funds and Their Apportionment, p. 231. 
 
 " McChesney, Monograph on Secondary Education, in California, 
 pp. 23-8. 
 
 "Report of Superintendent of Public Instruction, 1905 and 1906, 
 p. 208. 
 
 " Report of State Superintendent of Public Instruction, 1905 and 
 1906, p. 283. 
 
 "The latest Laws available were those of 1906. The latest State 
 Report was that of 1908. 
 
 " Consolidated School Laws of New York, 1905, Title VII., Article i., 
 Sections 1, 2 and 5. 
 
74 States that Use Other than the Direct Subsidy Plan 
 
 the same act for the establishment, by the board of education, of 
 an academic department in any of these schools. These institu- 
 tions are supported and administered just as the district schools, 
 both in their academic and elementary departments. The law 
 specifically provides, however, that all moneys apportioned from 
 the state fund to these union schools, other than that especially 
 provided for the academic department, shall be applied to the 
 department below the said academic department.^" 
 
 The state provides a literature fund to be applied entirely to 
 the support of secondary education. The apportionment of these 
 moneys is at present placed in the hands of the Commissioner of 
 Education.^" It also provides a library fund which may be 
 participated in by the academic departments of cities, academies, 
 and union districts. 
 
 These funds which are included in a large state appropriation 
 for cities, academies, academic departments, and public school 
 libraries is apportioned as follows: Each city, each union dis- 
 trict, and each nonsectarian academy maintaining an academic 
 department according to the laws, ordinances, and regulations 
 of the regents of the university shall receive $100.00 for each 
 such academic department maintained therein. Each nonsec- 
 tarian private academy shall receive an amount equal to the 
 amount locally raised for books, pictures, and apparatus, pro- 
 vided that the state shall not contribute to any one such academy 
 an amount in excess of $250.00 for any one year. Each union 
 school district maintaining an academic department shall receive 
 an amount equal to that raised locally, provided that the 
 state shall not contribute to any one such school an amount 
 in excess of $268.00 for any one year, and $2.00 additional for 
 each teacher employed in said district. After providing similarly 
 for academic departments in cities, for tuition for nonresident 
 pupils and for libraries in common school districts, the remainder 
 of the fund is apportioned upon the basis of aggregate days 
 attendance of academic pupils.''^ 
 
 The secondary schools of the state appear to receive indirect 
 
 aid from the common school fund as follows: The law provides 
 
 I 
 
 '• Consolidated School Laws of New York, 1905, Title VII., Article 4, 
 Section 15, Paragraph 10, and Section 23. 
 
 "Consolidated School Laws of New York, 1905, Chapter 586, p. 195. 
 " Session Laws of State of New York, 1906, Chapter 683. 
 
States that Use Other than the Direct Subsidy Plan 75 
 
 that each district having an assessed valuation of $20,000 or less 
 shall receive $200.00, that each district having an assessed valu- 
 ation of $40,000 or less shall receive $175.00, that each district 
 having a valuation of $60,000 or less shall receive $150.00, and 
 that each remaining district shall receive $125.00.^^ For each 
 additional teacher employed after the first, the district is entitled 
 to receive $100.00.^^ 
 
 The state law also provides for the free tuition of pupils re- 
 siding in districts where no academic department exists, and 
 provides for their admission into such schools as support an 
 academic department without the payment of any tuition other 
 than that provided by the state law. The amount of this tuition 
 is set by the state at $20.00 per annum per pupil. ^* 
 
 It appears that the legislature of 1907 slightly changed the 
 above act so that at present it permits cities to charge an amount 
 equal to the actual cost of instruction, with the understanding 
 that $20.00 will be paid by the state and the remainder by the 
 district in which the pupil resides. The act does not, however, 
 apply to union districts or academies, which are in greater need 
 of the additional sum than cities.^'* 
 
 In 1906 the legislature passed an act amending the laws of 
 1894 in reference to the training of teachers. The sum of 
 $100,000 was appropriated to be apportioned to such academies, 
 lanion schools, and cities as the state educational authorities 
 should designate to carry on the work of training teachers. It 
 was provided that no more than 115 such cities or other academic 
 departments should be selected and that each such city or depart- 
 ment conducting such a class of not less than ten pupils should 
 receive $500.00. The remainder of the fund was to be appor- 
 tioned among such training classes ratably on the basis of the 
 number of teachers receiving training in excess of the ten form- 
 ing the basis for the first apportionment.^" 
 
 Andrew S. Draper, Commissioner of Education for the State 
 of New York, says in regard to the development of the litera- 
 ture fund : " What is known as the literature fund was estab- 
 
 " Session Laws of New York, 1906, Chapter 698. 
 
 "The Consolidated School Laws of New York, Title II., Article i, 
 Sections 6 and 7. 
 
 " Session Laws of New York, 1906, Chapter 683. 
 '• Report of Educational Department, 1908, p. 248. 
 " Session Laws of New York, 1906, Chapter 556. 
 
76 States that Use Other than the Direct Subsidy Plan 
 
 lished in aid of secondary education in 1790. The stream made 
 a fine start, and it has gathered volume in its progress. The 
 state appropriation for the purpose is now $350,000 annually. 
 The state appropriations from 1793 to 1904 were $4,523,983. 
 The total expenditures of the system up to 1904 have been 
 $104,583,413. The system has of course seen its most marvelous 
 growth in the last twenty-five years. In 1880 the extent of 
 the state aid was $43,000 and the total expenditures for the 
 secondary schools were $1,013,780. In 1890 the state aid was 
 $107,559 and the total cost of the system was $2,341,956. In 
 1904 the state aid was $312,368 and the total expenditures were 
 $8,111,369. In 1893 there were 47,799 in our secondary schools,, 
 and in 1905 there were 95,096. The secondary school system is 
 evenly distributed over the state for it has schools in every- 
 county.""' 
 
 The number of high schools has increased in the state from 
 314 in 1894 to 675 in 1907, and the number of academies has 
 increased during the same period from 123 to 157. The total 
 enrollment in these schools in 1907 was 94,386. Of this number 
 87,654 were enrolled in high schools. During this same year 
 the high schools were classified as follows: There were 447 
 high schools, 103 senior schools, 40 middle schools and 85 junior 
 schools. There were of the academies 112 high schools, 6 senior 
 schools, 12 middle schools, and 24 junior schools with 3, 
 special schools.^* 
 
 Concerning the apportionment of funds to secondary schools 
 for the academic year 1906-7 the Commissioner of Educa- 
 tion says: 
 
 " The amounts apportioned from the academic and library 
 fund to the schools of the state for the fiscal year ending Septem- 
 ber 30, 1907, were as follows: 
 For quota of $100.00 to each nonsectarian secon- 
 dary school $65,600 oa 
 
 For library books, apparatus and pictures 142,569 35 
 
 For tuition of nonresident students ^. . . 88,608 46 
 
 For attendance of academic students 255,411 96 
 
 Total $552,189 77 
 
 " Report of Educational Department, New York, 1905, p. 14. 
 
 " Report of Educational Department, New York, 1908, pp. 251-2. 
 
States that Use Other than the Direct Subsidy Plan 77 
 
 " The sum indicated above ($88,608.46) is the amount actu- 
 ally paid for the tuition of nonresident academic students during 
 the fiscal year 1906-7. The amount earned within the school 
 year 1906-7 was approximately $155,644.46. The item relating 
 to library books, apparatus and pictures ($142,569.85) includes 
 payments made to both academic and elementary schools. On 
 the basis of a fair estimate the sums apportioned to academic 
 departments would be approximately $28,800 for books, $23,100 
 for apparatus, and $3,571.43 for pictures."^* 
 
 Leaving out the item of tuition which would prove a loss to 
 any school receiving it, at $20.00 per pupil, and estimating upon 
 the remaining figures, it would appear that each of the above 
 schools received upon the account of the $100.00 quota and the 
 apparatus distribution an average of $184.50, and upon the 
 aggregate attendance item about $3.40 per pupil enrolled. This 
 would give a school with an enrollment of 40 pupils in the 
 neighborhood of $320.50 subsidy. 
 
 That the free tuition law works an injustice upon the schools 
 receiving such tuition has been frequently pointed out by the 
 Commissioner of Education. The average annual per capita 
 cost of secondary education in high schools for 1907 was $80.87, 
 and in academies it was $179.97, while the maximum amount 
 that these schools were permitted to collect was $20.00 per capita. 
 The act of 1907 which permits cities to charge an amount equal 
 to the actual cost of such education will probably work to drive 
 many more of the tuition pupils into the smaller and poorer 
 high schools. 
 
 The following table taken from the commissioner's report of 
 1907 shows clearly the distribution of the tuition pupils. 
 
 " Report of Department of Education, 1908, p. 253. 
 
78 States that Use Other than the Direct Subsidy Plan 
 Apportionments for Free Tuition Pupils'" 
 
 Boys. Girls. Amount paid. 
 
 To cities 455 602 $19,187 58 
 
 To villages of at least 5,000 in- 
 habitants 382 532 15,979 97 
 
 To villages of at least 2,000 in- 
 habitants 714 1,195 3i>825 76 
 
 To villages of less than 2,000 in- 
 habitants 2,054 3,094 88,651 15 
 
 Totals 3,605 5,332 $155,64446 
 
 In view of the fact that the Commissioner of Education points 
 out that the per capita cost of instructing academic students is 
 from three to five dollars greater in villages than in cities,'^ and 
 in view of the further fact that the average for all high schools 
 in the state is more than $80.00 per capita for such instruction, 
 it would appear that the high schools in rural communities are 
 bearing an undue share of the burden of secondary education in 
 the state. 
 
 From the foregoing figures it appears that more than 10 per 
 cent, of the high school pupils in the state are tuition pupils. 
 
 Rhode Island :'^ Rhode Island passsed a law in aid of town 
 high schools in 1898. In effect this law provides that any town 
 maintaining a high school and having a course of study approved 
 by the state board of education, shall be entitled to receive annu- 
 ally from the state $20.00 for each of the first 25 pupils in 
 average attendance in said school, and ten dollars for each of 
 the second 25 pupils in average attendance in said school. It 
 is further provided that any town not maintaining a high school, 
 which shall make provision for the free attendance of its children 
 at some high school or academy approved by the state board of 
 education, shall receive aid from the state for each pupil in such 
 attendance on the same basis and to the same extent as if it 
 maintained a high school.'^ 
 
 '" Report of Department of Education, 1908, p. 249. 
 
 " Report of the Department of Education, 1908, p. 248. 
 
 '^ The latest State Reports and laws available were those of 1906. 
 
 " School Laws of Rhode Island, 1903, Chapter 544, Section 3. 
 
States that Use Other than the Direct Subsidy Plan 79 
 
 In 1900 permission was granted to the school committee of 
 any town to pay for the transportation of the pupils to and 
 from such schools at public expense.'* 
 
 The legislature of 1903 abolished all districts and vested the 
 administration of all schools in the town.'* This act while not 
 directly aimed at an increase of rural high schools will neces- 
 sarily stimulate their organization in the state. 
 
 It is also possible under the laws of the state for two or more 
 towns to form a union district for the purpose of organizing a 
 high school. 
 
 In some respects the above laws are superior to those of most 
 other states in that they place a premium upon increased attend- 
 ance. They, however, do not necessarily encourage the estab- 
 lishment of local high schools because they place no special 
 premium upon local effort in this direction, giving the same state 
 aid to towns whether they provide school facilities at home ot 
 abroad. In a state as thickly settled as Rhode Island a town 
 having fifty pupils in attendance upon outside high schools should 
 have a high school of its own. 
 
 The laws of the state make provision for thorough town 
 supervision which aids much in increasing the efficiency of the 
 elementary schools and thus tends to increase the attendance 
 upon high schools. 
 
 Washington :'° The legislature of the state of Washington 
 passed a law, 1890, the object of which was undoubtedly to 
 encourage the organization and support of rural high schools. 
 This law authorized the establishment of union high schools, 
 and provided that such high schools should receive state aid 
 upon the same basis of apportionment as other public schools of 
 the state, that is to say that each such school should receive an 
 apportionment of state moneys upon the basis of at least 2,000 
 days attendance no matter what the actual attendance might be. 
 In addition to this it provided that a bonus of $100 should be 
 paid each year to every union high school for each high school 
 grade maintained. 
 
 '* School Laws of Rhode Island, 1903, Chapter 743, Section 8. 
 " School Laws of Rhode Island, 1903, Chapter iioi, Section i. 
 "The latest Laws consulted were those of 1907. The latest State 
 Reports consulted were those of 1906. 
 
8o States that Use Other than the Direct Subsidy Plan 
 
 The State Superintendent in his report for 1902 pointed out 
 that this law while serving in some instances the purpose for 
 which it was intended in many other cases worked an injustice, 
 since it failed to place a minimum limit upon the length of a 
 school year and failed to define the number of pupils necessary 
 to constitute a grade.^^ This matter was, however, remedied 
 by the legislature of 1903 which limited the grade to a minimum 
 of four pupils with an average daily attendance of at least three 
 pupils for six months.^* 
 
 In June, 1906 there were 33 union high schools in the state 
 with an enrollment of 637 pupils. Thus it appears that the 
 average enrollment in these schools was less than twenty pupils. 
 Five of the above schools gave four year courses, eight gave 
 three year courses, fourteen gave two year courses, and six gave 
 one year courses. Of these schools four received aid as four 
 year schools, two received aid as three year schools, eleven 
 received aid as two year schools, and ten received aid as one 
 year schools. The least number of pupils enrolled by any one 
 of these schools was 4, and the largest number enrolled by any 
 one was 87. The amount of state subsidy received by them 
 ranged from $272 to $1,334.^* 
 
 " Report of State Superintendent, 1902, p. 188. 
 " Report of State Superintendent, 1904, p. 189. 
 " Report of State Superintendent, 1906, p. 68. 
 
CHAPTER VIII 
 
 STATES THAT DIRECTLY OR INDIRECTLY PAY THE TUITION 
 OF CERTAIN HIGH SCHOOL PUPILS 
 
 NEW HAMPSHIRE, CONNECTICUT, DELAWARE, AND VERMONT 
 
 New Hampshire :^ The high schools of New Hampshire are 
 considered an integral part of the public school system, and since 
 the state funds are distributed upon the school attendance basis, 
 the districts benefit by increasing this attendance. The state 
 funds consist of a literary fund and an equalization fund. The 
 equalization fund consists of an annual appropriation of $25,000. 
 Twenty-five per cent, of this amount or $6,250 plus an addi- 
 tional $10,000 is devoted to the aid of supervision in the poorer 
 towns. The remainder of the equalization fund, $18,750, is 
 apportioned only to such towns in the state as have an equalized 
 valuation of less than $3,000 for each child of the average 
 attendance in the public schools, and to such other towns as the 
 governor and council may upon the recommendation of the state 
 superintendent add to the list. To these several towns this fund 
 is apportioned, " * * * in direct proportion to said average 
 attendance, and in inverse proportion to the equalized valuation 
 per child * * *."' In effect the act is made to apply to all 
 towns as defined above, and to many other towns whose equaliza- 
 tion valuation per child of the average attendance does not 
 reach $5,000. 
 
 The literary fund for 1905-6 amounted to $36,931 which was 
 apportioned to towns and other school districts in proportion to 
 the number of pupils in attendance upon the public schools in 
 such towns and districts for a period of not less than two weeks.' 
 
 In 1905-6 the per capita amount received by the towns and 
 districts from the literary fund was 57 cents, and the amount 
 received by the various towns and districts from the equalization 
 fund varied from $1.10 to $4.88 per capita.* Thus it will appear 
 
 • The latest School Laws available were those of 1907. The latest 
 State Report was that of 1906. 
 
 ' School Laws of New Hampshire, 1907, Chapter i. 
 
 ' School Laws of New Hampshire, 1907, Chapter i. 
 
 ' Compiled from Report of State Superintendent, 1905-6. 
 
82 States that Directly or Indirectly Pay Tuition 
 
 that the amount of the state aid, received by the poorer districts 
 for general school purposes, is so small that it could have little 
 or no influence upon the establishment of rural high schools. 
 
 In 1901 the legislature of New Hampshire passed an act com- 
 pelling all towns not supporting a high school or a school of 
 corresponding grade to pay the tuition of all resident children 
 in attendance upon any approved high school or academy in the 
 state: provided that the amount of such tuition should not be in 
 excess of the average cost for each pupil in attendance in 
 said school.^ 
 
 This same act provides for the reimbursement of the poorer 
 towns in amounts varying from ten to one hundred per cent, of 
 the amounts actually expended for such tuition. " Towns whose 
 rate of taxation for school purposes in any one year is $3.50 or 
 more on $1,000, and whose average rate of taxation for all pur- 
 poses for five years next preceding is $16.50 or more on $1,000, 
 shall receive a share of said appropriation as follows ; * * *." 
 The act goes on to provide that towns with a general tax rate of 
 from $16.50 to $17.49 upon each $1,000 of valuation shall receive 
 one-tenth of the amount expended for tuition, and an added tenth 
 for each additional dollar paid upon the thousand." The sum of 
 $8,000 has been appropriated annually to meet the requirements 
 of this act.' 
 
 It is perhaps needless to say that the theory underlying this 
 scheme of tuition reimbursement is superior to any other in 
 existence in the country. A further discussion of this matter 
 will be taken up in a later chapter. 
 
 Connecticut:' Beginning with the academic year 1897-8 
 Connecticut permitted any town not supporting a high school to 
 pay the whole or any part of the tuition fee of any child who 
 resides with his parents or guardian in said town, provided that 
 the high school shall have been previously approved by the state 
 board of education. The same general assembly, 1897, passed 
 an act providing for the reimbursement of towns with a tax 
 list not to exceed $900,000 to the extent of two-thirds of the 
 
 ' School Laws of New Hampshire, 1907. 
 ' School Laws of New Hampshire, 1907. 
 ' Session Laws of New Hampshire, 1905, Chapter 89. 
 ' The latest Laws available were those of 1905. The latest State Report 
 available was that of 1905. 
 
States that Directly or Indirectly Pay Tuition 83 
 
 amount actually expended by said town for tuition of pupils in 
 attendance in outside high schools; provided that not more than 
 thirty dollars should be paid for each scholar in attendance 
 in any outside high school.* The following general assembly 
 removed the clause limiting state aid to towns with a list of 
 $900,000 or less.^" 
 
 In 1901 the general assembly changed the wording of the law 
 of 1897 so that it provided that the state should reimburse towns 
 to the extent of the tuition paid; provided that not more than 
 thirty dollars should be paid by the state for each scholar in 
 attendance from any town.^^ 
 
 Connecticut also passed a law, 1903, providing for the free 
 transportation of pupils in attendance upon a neighboring high 
 school. This law permits any town to pay the transportation of 
 its pupils to and from outside high schools, and also provides for 
 the reimbursement of said town to the extent of one-half of the 
 amount so expended, provided that not more than twenty dollars 
 shall be paid by the state for the transportation of any one 
 pupil in any given year.'^ 
 
 There is also a provision in Connecticut for the aiding of high 
 school libraries. The act provides that any district or town 
 supporting a high school may receive from the state ten dollars 
 for the establishment of a library, provided said district or town 
 raises for the purpose the same amount. In addition to this, 
 five dollars will be given by the state for the yearly support 
 of said library, provided the district or town raises a similar 
 amount. If the number of scholars in actual attendance in any 
 school exceeds one hundred an additional five dollars will be 
 annually paid for each hundred or fraction of a hundred in 
 attendance in excess of the first hundred.^^ 
 
 The laws of the state also provide for the payment of the 
 tuition of pupils, attending academies located in towns not having 
 high schools of their own, upon the same basis as that provided 
 for the attendance of pupils in high schools outside of 
 such towns.^* 
 
 » School Law of Connecticut, 1897, Chapter V. 
 
 '° School Law of Connecticut, 1899, Chapter V. 
 
 " School Law of Connecticut, 1904, Chapter V., Section 68. 
 
 " School Law of Connecticut, 1904, Chapter V., Sections 71 and 72. 
 
 " School Law of Connecticut, 1903, Chapter XV., Section 200. 
 
 '* School Law of Connecticut, 1903, Chapter V., Section 70. 
 
84 States that Directly or Indirectly Pay Tuition 
 
 The numbers attending nonlocal high schools and the amounts 
 paid for tuition for the seven years ending 1903-4 have been 
 as follows :^^ 
 
 
 Towns pay- 
 
 Tuition 
 
 Approved 
 
 Amount paid 
 
 Year. 
 
 ing tuition. 
 
 scholars. 
 
 high schools. 
 
 by state. 
 
 1897-8 
 
 32 
 
 136 
 
 27 
 
 $2,315 96 
 
 1898-9 
 
 40 
 
 214 
 
 24 
 
 3.584 09 
 
 1899-0 
 
 55 
 
 408 
 
 26 
 
 7,059 85 
 
 1 900- 1 
 
 61 
 
 489 
 
 31 
 
 8,591 72 
 
 I9OI-2 
 
 64 
 
 580 
 
 37 
 
 12,563 47 
 
 1902-3 
 
 69 
 
 649 
 
 42 
 
 15,312 85 
 
 1903-4 
 
 76 
 
 813 
 
 52 
 
 19,403 04 
 
 There are in all (1903-4) 78 high schools in the state. Of 
 this number 20 are district high schools, and the remainder, 58 
 are township high schools. Sixteen of the latter are organized 
 under the district system and 42 are organized under the con- 
 solidated system. Forty-nine of the 78 are four year, 21 are 
 three year, 5 are two year, and 2 are one year high schools.^® 
 
 There are 165 towns in the state. In 1903-4 there were 58 
 towns maintaining high schools, and 76 towns had tuition pupils 
 in neighboring high schools, leaving 31 towns that made no pro- 
 vision at all for high school pupils. During this same year the 
 state reimbursed these 76 towns in the amount of $19,403.04 and 
 $8,341.27 for the tuition and transportation of pupils. Eight 
 per cent, of the entire high schools enrollment of the state was 
 made up of nonresident pupils.^' Fifteen per cent, of the total 
 expense of public school education in Connecticut is borne by 
 the state. 
 
 The actual status of secondary educational opportunities in 
 this state may be best shown by quoting from page 13 of the 
 Report of the Board of Education for 1905 : 
 
 " If we look at purely rural areas in Connecticut generally 
 we find no high schools at all. Even if we include village com- 
 munities with a population not exceeding 2,000 we shall, with 
 few exceptions, find the same state of affairs. To find the unit 
 of population of a successful high school we must go higher than 
 
 '' Report of State Board of Education, 1905, p. 12*. 
 
 " Report of Connecticut Board of Education, 1905, p. 160.* 
 
 " Report of Connecticut Board of Education, 1905, p. 12.* 
 
States that Directly or Indirectly Pay Tuition 85 
 
 a population of 2,000. It is difficult to determine how much 
 higher or where the high school line should be drawn." 
 
 Delaware :" In this state there is no legal recognition of high 
 schools as such. All such schools where they exist are a part 
 of what is legally known as graded schools. Being a part of the 
 public school system these schools benefit equally in the distribu- 
 tion of the state school fund which is all apportioned upon the 
 teacher basis. The state fund consists of the income from the 
 permanent school fund (between 30 and 40 thousand dollars), 
 and such appropriations as are made by the legislature, which 
 may not be less than $132,000.00 annually. The above fund is 
 apportioned among the different districts or schools according to 
 the number of teachers employed.^' 
 
 With an income of $34,296.50 from the permanent fund for 
 1900 and the above minimum legislative appropriation the amount 
 received by the different schools per teacher employed would 
 have been for 1904-5 a little more than $185.00. 
 
 It thus appears that a school doing high school work and 
 employing one or more teachers in this department receives 
 a small direct subsidy for each such teacher. Neighboring school 
 districts are permitted to create a joint district for the purposes 
 of securing better school facilities including graded schools.^" 
 
 In 1899 the general assembly of Delaware passed an act which 
 provided for the division of the state into districts containing 
 one or more graded schools which were to be free to qualified 
 pupils of said districts. The tuitions of all such pupils are to 
 be paid direct to the schools concerned by the State Treasurer. 
 The amount of the aforesaid tuition is $15.00 per year for each 
 pupil. This act does not apply to the city of Wilmington. ^^ 
 
 The last state report available was that of 1900, so it was 
 impossible to get at the workings of this act in the last 
 few years. 
 
 The United States Commissioner of Education reports a total 
 of 15 high schools for the year 1906. One of these is a union 
 high school.^^ 
 
 " The latest School Law consulted was that of 1907. 
 
 " School Laws, Delaware, 1907, p. 49. 
 
 '" School Laws, Delaware, 1907, p. 24, 
 
 " School Laws, Delaware, 1907, pp. 44-46. 
 
 ''School Laws, Delaware, 1907, Volume 2, p. 752. 
 
86 States that Directly or Indirectly Pay Tuition 
 
 Vermont :^^ As early as 1876 a law was passed in Vermont 
 giving districts the privilege to contract with academies for the 
 education of all or any part of their pupils. Naturally certain 
 of these pupils sooner or later were pursuing secondary subjects 
 in these schools.^* 
 
 The same year an act was passed empowering towns to estab- 
 lish and maintain central high schools. It seems that at a very 
 early period some thirty villages in the state became incorporated 
 by special acts in order that they might establish and maintain 
 high schools as a part of their graded school systems. These 
 schools are in existence at the present time.^^ 
 
 In 1894 a law was passed providing that towns with a popu- 
 lation of 2,500 must establish and support a high school or pro- 
 vide for the education of their children of high school age and 
 preparation in academies, or in the schools of a graded district or 
 districts located therein.^" 
 
 The State Superintendent in his report for 1904 sums up the 
 legal status of secondary education at the present time as 
 follows : 
 
 " In 1900 existing laws provided for free advanced, or secon- 
 dary educational opportunities as follows: (i) Towns and cities 
 having 2,500 inhabitants or more, were required to provide free 
 secondary instruction: (2) Towns having within their limits an 
 academy, seminary or high school of incorporated district, were 
 required to provide free secondary instruction: (3) Any town, 
 not within the foregoing, by action of its directors, might pro- 
 vide such instruction free in other towns: (4) Any town, by a 
 vote, might support a high school or otherwise provide free 
 advanced instruction. In effect all the large towns and many 
 of the small ones either maintained high schools or provided 
 equivalent schooling in other institutions.''' 
 
 " In 1902 two-thirds of our youth resided in towns that pro- 
 vided free secondary schooling * * *. At this time a very 
 important law was enacted, whose aim was to require every town 
 
 " The latest State School Report available was that of 1906. The 
 latest School Law available was that of 1907. 
 '■' Vermont School Report, 1904, p. 74. 
 "Vermont School Report, 1904, p. 75. 
 " School Laws of Vermont, 1895, Chapter 36. 
 "Vermont School Report, 1904, pp. 7S-6. 
 
States that Directly or Indirectly Pay Tuition 87 
 
 to provide for the instruction of advanced pupils in high school 
 branches of study in the high schools of the town, or in the high 
 schools of the incorporated districts, or in an academy in the 
 town, or in the academies and high schools of other towns. 
 Vermont in this act took the final step, whereby free secondary 
 education is provided for every youth in the state who is 
 fitted for it, * * *."" 
 
 A new act was passed in 1907 referring to high schools and 
 secondary pupils as follows: 
 
 It is required that each and every town shall maintain a high 
 school or provide for the payment of the tuition of all of its 
 pupils of advanced grade in a standard district high school or 
 academy within the town, or in the standard high schools or 
 academies in an adjoining town within or without the state. It 
 is provided, however, that the town shall not be compelled to 
 pay more than twenty-four dollars per year for any one pupil.-* 
 
 Certain of the towns paying the tuition of pupils may be reim- 
 bursed as follows : There shall be paid, " * * * according 
 to and based on tuitions not exceeding twenty-four dollars per 
 pupil per school year: to towns having raised and expended 
 for current school expenses during the preceding school year, 
 excluding interest on United States deposit fund, the state school 
 tax and expenditures for new buildings, forty per cent, or more 
 of their grand lists, a sum equal to one-fourth of the amount 
 expended for tuitions; to towns having raised and expended 
 fifty per cent, or more of their grand lists, a sum equal to one- 
 half the amount so expended; to towns having raised and ex- 
 pended sixty per cent, or more, a sum equal to three-fourths 
 of the amount so expended; and to towns having raised and 
 expended seventy per cent, or more, a sum equal to the amount 
 so expended."^' 
 
 In 1906 there were registered in the high schools of the state 
 S,2i8 pupils. Of this number 435 had their tuition paid by 
 parents or guardians and 1,297 had their tuition paid by their 
 towns. During the same year there were 1,551 secondary stu- 
 dents attending academies, of which number 983 had their 
 
 " Vermont School Report, 1904, pp. 75-6. 
 
 " School Laws of Vermont, 1907, Section 1018. 
 
 " School Laws of Vermont, 1907, Section 1023. 
 
88 States that Directly or Indirectly Pay Tuition 
 
 tuition paid by their respective towns.** If we assume that 
 the academy students were all tuition pupils, it will appear 
 that 43.5 per cent, of the pupils enrolled in the two types of 
 schools are tuition pupils. If, however, we eliminate the figures 
 for the academies which serve largely as secondary schools for 
 many towns we still have one-third of the high school pupils 
 attending high schools outside of their own districts. 
 '" Vermont School Report, 19P6, pp. 145 and 488. 
 
CHAPTER IX 
 
 STATES THAT LEGALIZE THE LOCAL PAYMENT OF HIGH 
 SCHOOL TUITION 
 
 INDIANA, OHIO, KANSAS, NEBRASKA, MICHIGAN, IDAHO, OREGON, 
 
 AND UTAH 
 
 Indiana -.^ The beginning of the history of the township high 
 schools in Indiana dates back to the adoption of the constitution 
 of 1849, and the legislative enactments of 1852. Under these 
 laws the township became the unit of organization for local 
 government, taxation, and the establishment and support of pub- 
 lic schools. The efficiency of these early laws was doubtless due 
 in large part to the fact that they were so framed as to encourage 
 the centralization into combined districts, towns, districts and 
 towns, and combined towns. These same laws gave rise later 
 to the township graded schools, and finally to the township 
 high schools.^ 
 
 While these laws implied the provision of secondary educa- 
 tional advantages, no progress whatever was made in this direc- 
 tion until after the civil war. The high school was merely recog- 
 nized as a part of the public school system and has consequently 
 been a gradual evolution out of the elementary school. 
 
 It is probable that the first township high school to be estab- 
 lished in the state was in or near the town of Nineva in 1872.' 
 
 Such high schools as existed in the state previous to 1891 
 were organized under the general law permitting the establish- 
 ment of graded schools. Before this time the law made no 
 mention of high schools as such.* The legislature, however, at 
 this time passed several acts relating to high schools. Under 
 the general duties of trustees the law provides that : " Such 
 school trustees may also establish and maintain in their respective 
 corporations, as near the centre of the township as seems wise, 
 at least one separate graded high school, to which shall be ad- 
 
 ' The latest School Laws available were those of 1907, The latest 
 State Reports available were those of 1905-6. 
 
 ' Cotton, S. S. R., 1904, pp. 681-687. Sch. Rev., XII., p. 266. 
 
 ' Report of State Superintendent, 1898. 
 
 * School Laws of Indiana, 1883 and 1889, Section 444. 
 
go States that Legalise the Local Payment 
 
 mitted all pupils who are sufficiently advanced: Provided, 
 that the school trustees of two or more corporations may establish 
 and maintain joint graded high school (s) in lieu of separate 
 graded high schools, * * * ; Provided further, that any 
 trustee instead of building a separate graded high school 
 for his township shall transfer the pupils of his township 
 competent to enter a graded high school to another school 
 corporation : Provided further, that, all payment of tuition, 
 provided for under this act, heretofore made by school trus- 
 tees for such high school privileges are hereby legalized: 
 Provided further, that no such graded high school shall be built 
 unless there are at the time such house is built, at least twenty- 
 five common school graduates of school age residing in the town- 
 ship. ° The act makes further definite provision for the payment 
 of the tuition of pupils in attendance in other school cor- 
 porations.' 
 
 The free transportation of pupils is also largely practiced in 
 Indiana. The legal status for such practice is evidently found 
 in Section 128 of the school law, which provides for the aban- 
 donment of school districts and their consolidation into joint 
 districts. The act does not specifically give such power but it 
 has been interpreted to mean this.' 
 
 The large extent to which the free transportation of pupils is 
 practiced in Indiana is shown by the fact that previous to 1906 
 there had been 830 schools abandoned, and during the academic 
 year ending 1905-6 there were transported at public expense 
 9,425 pupils or an average of between eleven and twelve to 
 the district.' 
 
 The laws of Indiana also provide for the organization and 
 support of county high schools in such counties as may receive 
 as a gift certain high school buildings and equipment as defined 
 by the act. The tax levy for such schools must not, however, 
 exceed fifteen cents upon each $100.00 of valuation. Tuition in 
 these schools must be free to all properly qualified residents 
 of the county.* 
 
 ' School Laws of Indiana, 1904, Section 117. 
 
 • School Laws of Indiana, 1904, Sections 157 and 158. 
 
 ' Report of State Superintendent, Indiana, 1904, p. 281. 
 ' Report of State Superintendent, Indiana, 1905-6, p. 619. 
 
 • School Laws of Indiana, 1904, Sections 289 and 291. 
 
States that Legalize the Local Payment 91 
 
 In Indiana as in Illinois the high school being a part of the 
 common school system the educational funds may be applied to 
 these schools in the same manner and to the same extent as to the 
 elementary schools. The State Superintendent in his report for 
 1905-6 gives $3.04 per capita as the total state school revenue, 
 and $10.31 per capita as the total local revenue.^" In other words 
 the state approximately bears 22.7 per cent, of the financial 
 burden attached to public education in the state. Both the state 
 and county distribute these funds upon the school census basis. 
 
 The State Superintendent in his report for 1903-4, page 686, 
 gives the following data : 
 
 Number of townships in Indiana 1,016 
 
 Number of high schools, all grades 763 
 
 Number of commissioned high schools 205 
 
 Number of township high schools 558 
 
 Number of commissioned township high schools .... 20 
 
 High school enrollment 38,242 
 
 Township high school enrollment 13.435 
 
 High school graduates 4.583 
 
 Township high school graduates 1,414 
 
 Number of high school teachers i ,829 
 
 Number of township high school teachers 848 
 
 Salaries of Teachers Employed 
 
 a. Commissioned high school teachers (170 days 
 
 average school year) per year $806 50 
 
 b. Township high school teachers (140 days aver- 
 age school year) per year 500 04 
 
 Per Capita Cost of Maintenance 
 
 a. In commissioned high schools $33 00 
 
 b. In township high schools 25 00 
 
 Ohio:^^ Ohio has the township system of high school 
 organization with entire local support. The original provision 
 
 '"Report of State Superintendent of Indiana, 1905-6, pp. 806-7. 
 "The latest State Report available was that of 1906. The latest 
 School Laws available were those of 1907. 
 
92 States that Legalise the Local Payment 
 
 for such establishment of township high schools is to be found 
 in the acts of 1853." 
 
 There is ample evidence that several townships took advantage 
 of the opportunities offered under this law as early as 1870, 
 since the report of the commissioner of education for that year 
 gives the number of teachers employed in township high schools 
 as eighteen.^^ The report of 1880 gives the total enrollment of 
 pupils in township high schools as 1,254.^* The report of 1890 
 gives the number of townships having taken advantage of the 
 law as something less than one hundred.'^ The number of 
 pupils enrolled in these schools was for the same year 2,920. 
 This enrollment had increased to 6,196 by the year 1900,'' and 
 had further increased to 6,854 by the year 1906.^' The number 
 of township high schools had also increased to 285 by the end 
 of the academic year 1903-4." 
 
 No further legislation of importance referring to township 
 high schools occurred until 1892, when an act was passed known 
 as the Boxwell Law.^* This act provided for the uniform 
 examination of pupils of the public schools in the grammar 
 school subjects, and enabled any successful candidate to enter 
 any high school in the county or in any adjoining county, and 
 further provided, that the tuitions of such pupils might be paid 
 by the various boards of education of the townships to which 
 the pupils belonged. It seems that the part of the above act 
 which referred to the payment of tuition by the various town- 
 ships was interpreted by many boards of education as being 
 compulsory,^' and in the opinion of the attorney general, ren- 
 dered six years later, it was compulsory.^" 
 
 The above decision did not however settle the matter and 
 the legislature of 1902 enacted a new law to cover the case. This 
 act definitely provides for the payment of the tuition of such 
 pupils as have passed the examinations provided by the county 
 
 " Report of Commissioner of Education of Ohio, 1900, p. 11. 
 " Report of Commissioner of Education of Ohio, 1870, p. 13. 
 '■■ Report of Commissioner of Education of Ohio, 1880, p. loi. 
 " Report of Commissioner of Education of Ohio, i8go, p. 5. 
 •' Report of Commissioner of Education of Ohio, 1900, p. 77. 
 " Report of Commissioner of Education of Ohio, 1906, p. 51. 
 '« H. B. No. 413, Acts of 1892, State of Ohio. 
 " Report of Commission of Education, 1894, p. 7. 
 '" Report of Commission of Education, 1899, p. 9. 
 
States that Legalize the Local Payment 93 
 
 board and as reside in such townships, special or subdistricts, 
 as maintain no high schools of their own. In order that the 
 various townships, districts, and subdistricts may meet this 
 demand without using the funds provided for the elemen- 
 tary schools, it is provided that the Boards of Education 
 may levy a special tax of an amount not to exceed 
 two mills upon the dollar.^^ Under this -act 5,293 pupils had 
 their tuition paid by local districts and townships in nonlocal 
 high schools during the academic year 1905-6.^^ 
 
 The legislature of 1898 passed an act providing for the free 
 transportation of pupils at public expense. This matter is en- 
 tirely optional with the local boards of education. It is, how- 
 ever, quite largely practiced in the state at the present time. 
 
 The high school law of 1902 defines high schools and pro- 
 vides for their division into three classes somewhat as follows: 
 A first grade high school shall offer a course of four years of 
 not less than thirty-two weeks each, in which at least sixteen 
 courses shall be required for graduation. A second grade high 
 school shall offer a course covering not less than three years of 
 not less than thirty-two weeks each, in which at least twelve 
 courses shall be required for graduation. A third grade high 
 school shall offer a course covering at least two years of not 
 less than twenty-eight weeks, in which at least eight courses 
 shall be required for graduation."' 
 
 During the four year period ending 1906 the number of high 
 schools in the state increased regularly from 781 to 930, the 
 number of first class schools increased less regularly from 179 to 
 291, the number of second class schools increased irregularly 
 from 268 to 273 and the number of third class schools increased 
 less irregularly from 334 to 366.''* If the promotion of these schools 
 from class to class was regular, the number of schools promoted 
 to the third class was 149, the number promoted from third to 
 second class was 117 and the number promoted from second to 
 first class was 112. These figures show that the interest of the 
 people of the rural districts of the state is still more taken 
 
 " School Laws of Ohio, 1906, Chapter g, Section 4029-3. 
 " Report of Commissioner of Education, 1906, p. 54- 
 " School Laws of Ohio, 1906, Sections 4007-2 and 4007-4. 
 '* Reports of Commissioner, Ohio, 1903, p. 61, 1904, p. 13, 1905, p. 
 19, 1906, p. 26. 
 
^4 States that Legalize the Local Payment 
 
 up with the extension of secondary educational facilities than 
 with their increased efficiency as measured by the introduction of 
 the higher grades. 
 
 The maximum amount of local tax that may be levied in any 
 township in Ohio for school purposes proper may not exceed 
 ten mills upon the dollar. This amount may be exceeded only 
 for the purpose of transporting pupils.^^ 
 
 The number of pupils presenting themselves for examination 
 in the grammar school subjects increased from 2,131 in 1892 to 
 21,051 in 1906. The number passing such examinations increased 
 from 1,341 in 1892 to 6,651 in 1906. 
 
 Of the total amount expended in the state for public education 
 less than eleven per cent, is derived from state sources and this 
 is distributed to the counties, and by them to the various dis- 
 tricts and townships upon the school census basis. 
 
 There is no high school supervision in Ohio at least none of any 
 great adequacy. 
 
 Kansas r'^" In 1886 the state of Kansas provided that each 
 county having a population of 6,000 inhabitants or more might 
 establish a county high school.^' This law provides that the 
 counties establishing such high schools may, for the purposes 
 of building, paying teacher's salaries, and other current expenses, 
 tax themselves to the extent of six mills upon the dollar. When 
 the tax is levied for the payment of teachers' salaries and con- 
 tingent expenses only, it must not exceed three mills upon the 
 dollar.28 
 
 The legislature of 1905 provided that there should be three 
 courses of study in the above schools, each requiring four years 
 of work for completion.^" These courses were to be, a general 
 course, a normal course, and a collegiate course. The general 
 course is provided for those who do not expect to carry their 
 education any further. The normal course is provided for those 
 who expect to teach, the collegiate course is provided for those 
 who are preparing for the university. The above teachers' course 
 
 '' School Laws of Ohio, 1906, Section 4009-2. 
 
 *• The latest State Report available was that of 1906. The latest 
 School Laws available were those of 1907. 
 
 " School Laws of Kansas, 1886, Chapter 147, Section i. 
 
 " School Laws of Kansas, 1886, Chapter 147, Section 6. 
 
 2" School Laws of Kansas, 1905, Chapter 389, Section i. 
 
States that Legalise the Local Payment 95 
 
 when completed entitles the graduate to a teacher's certificate 
 of the second grade and entrance to the professional work at the 
 state normal school.^" 
 
 In 1889 the legislature passed a law permitting districts located 
 in counties that did not maintain a county high school to pay 
 the tuition of all of their properly qualified pupils in attendance 
 upon neighboring high schools. ^^ Counties with a population of 
 less than 6,000 are permitted under the legislative act of 1903 to 
 combine with the school district or districts of the county-seat 
 in the establishment of a county high school as provided for 
 under the above acts.^^ 
 
 The legislature of 1905 provided for the compulsory levying 
 of a tax for the creation of a general high school fund in such 
 counties, not having a county high school, as have an estab- 
 lished high school or established high schools in one or more 
 districts or in cities with a population of less than 1,600 inhabi- 
 tants. The above tax must be a levy of not less than one-fourth 
 of a mill and not more than three mills upon the dollar.^' This 
 fund is distributed to the various school districts, supporting 
 high schools, according to the average daily attendance of resi- 
 dent pupils of the county in the high schools of each during the 
 preceding school year. It is further provided that tuition shall be 
 free in all such high schools to all properly qualified pupils re- 
 siding in the county.^* 
 
 There are in the state of Kansas a total of 105 counties. Up 
 to June, 1906 but twenty-two of these had county high schools 
 in operation.'^ The total enrollment in these schools for the 
 year 1905-6 was 3,350,'° and the number of graduates for the 
 same year was 315. The first of these schools was established in 
 1889.'' The average levy for the support of these schools, 
 during the year 1905-6 was 1.6 mills. 
 
 '"School Laws of Kansas, 1886, Chapter 147, Section 15. 
 " School Laws of Kansas, 1889, Chapter 250, Section i. 
 '' School Laws of Kansas, 1903, Chapter 433, Section 
 " School Laws of Kansas, 1905, Chapter 397, Sections i and 9. 
 " School Laws of Kansas, 1905, Chapter 397, Sections 4 and 7. 
 '' Report of State Superintendent, 1906, p. 27. 
 ^' Report of State Superintendent, 1906, p. 109. 
 " Report of State Superintendent, 1906, p. 191. 
 
96 States that Legatee the Local Payment 
 
 Nebraska:"* The laws of Nebraska permit any district with 
 a school census of more than 150 to create a high school, and to 
 provide for its support by local taxation. No distinction is made 
 between the primary and high schools of the district in so far as 
 their support is concerned."* 
 
 It is also provided that any district board may, upon being au- 
 thorized by a two-thirds vote of those present at any annual or 
 special meeting, contract for the free tuition of pupils either in 
 the primary or high school departments of neighboring dis- 
 tricts.*" It is further provided that the board upon similar con- 
 ditions may transport its pupils to said district at public expense. 
 
 The exact date at which the law providing for the establish- 
 ment of high schools was placed upon the statute books could 
 not be ascertained, but it antedated the year 1877*^ which is 
 sufficient to the purpose here. 
 
 In 1895 the legislature passed an act which provided for the 
 creation of what is known as free high schools.*^ These schools 
 were to be free to all properly qualified pupils, provided such 
 schools had the capacity to take care of them. Any district 
 with a school census of more than 150 children could qualify as 
 a free high school district, and establish and maintain a high 
 school. These schools were permitted to collect from the various 
 county boards which represented counties that had pupils in 
 attendance upon them the sum of fifty cents per week for each 
 pupil in attendance from said counties, and more than this 
 amount if it could be shown that the actual cost of instruction 
 in any such high school was greater than fifty cents.*" 
 
 The section referring to free tuition was modified in 1899 so 
 that it provided seventy-five cents per week as the legal tuition, 
 and it made no provision for the collection of any amount in 
 excess of this. As previously provided these obligations were 
 to be paid out of the general funds of the counties having pupils 
 in attendance upon these schools. The amount of tax that might 
 
 "The latest School Laws available were those of 1907. The latest 
 State Report available was that of 1906. 
 "School Law, Nebraska, 1905, pp. 43-4. 
 "' School Law, Nebraska, 1905, p. 41. 
 *' School Law, Nebraska, 1877, Section 70. 
 " School Law, Nebraska, 1895, pp. 41-2. 
 " School Law, Nebraska, 1895, pp. 41-2. 
 
States that Legalize the Local Payment 97 
 
 be levied in any county upon this account was limited to one 
 mill upon the dollar.''* 
 
 In 1901 the act was again changed so that it provided that 
 only the actual cost of the education of the pupil could be col- 
 lected, and in case such cost exceeded seventy-five cents, as 
 specified above, the excess could be collected from the parent 
 or guardian of the pupil. At the same time there was added to 
 the act a new section which provided for the formation, in any 
 county, of an adjunct district to consist of all of the territory not 
 included in the high school district or districts of the county. 
 ■ The said district was to form a territory for the levying of a 
 special tax, of not to exceed two mills upon the dollar, for the 
 purpose of creating a free tuition fund to meet the expenses con- 
 templated above. The creation of such an adjunct district was, 
 however, optional.*' 
 
 The same legislature provided for the creation of rural high 
 schools. The act in eflfect merely provided for the establishment 
 and maintenance of high schools in joint districts.*" 
 
 The final decision, that these laws were all unconstitutional, 
 led the legislature of 1907 to create a new act which in effect 
 modified the above act so that it provided that each school dis- 
 trict which did not independently or jointly support a high school 
 should by taxation make provision for the education of its pupils 
 of secondary grade in neighboring high schools.*' It also pro- 
 vided for the optional establishment of county high schools to be 
 supported by a special county tax not to exceed five mills upon 
 the dollar. Such districts or joint districts as already support 
 high schools of their own are exempt from this tax.*' 
 
 Provision was also made in 1907 for extending state aid to 
 manual training departments in high schools. The annual appro- 
 priation for the purpose was $25,000 to be distributed in lots of 
 $700.00. The conditions upon which a high school may secure 
 this grant are such, however, as will confine the workings of 
 the act to the large high schools only.** 
 
 " School Law, Nebraska, 1899, pp. 39-42. 
 *' School Law, Nebraska, 1901, pp. 41-49- 
 "School Law, Nebraska, 1901, pp. 41-49. 
 <' School Law, Nebraska, 1907, pp. 39-47. 
 *' School Law, Nebraska, 1907, p. 74. 
 
g8 States that Legalize the Local Payment 
 
 There were at the end of the academic year 1903-4, eighty-five 
 city and village school districts in the state maintaining an estab- 
 lished high school course of four years, one hundred and one 
 maintaining a course of three years, one hundred and seventy- 
 five maintaining a course of two years, and eighty-five main- 
 taining a course of one year. In only 445 districts out of 6,667 
 do pupils have free tuition above the eight grade. 
 
 During the academic year 1903-4, the tuition for nonresident 
 pupils in the state amounted to $53,292.59. Most if not all of 
 this vast sum was paid for the tuition of high school pupils. 
 
 Previous to 1907 about 10 per cent, of the amount expended 
 for public education in Nebraska was provided by the state, but 
 the state millage was removed in 1907 so the state aid will be 
 considerably decreased in the future. The distribution of all 
 state school funds has^ in the past, been based upon the school 
 census. 
 
 Michigan :■** The Michigan law provides for the establish- 
 ment of high schools in any graded school district by submitting 
 the matter to a vote of the district at its annual meeting. Any 
 school district, or two or more joint districts, containing more 
 than 100 children between the ages of five and twenty years may, 
 by a two-thirds vote of the qualified electors present at any 
 annual meeting, organize as a graded school district.''* 
 
 The above law in effect dates back to 1861 as the following 
 quotation from the Report of the State Superintendent of Michi- 
 gan for the year 1861 shows : 
 
 "Union or Graded Schools." 
 
 "During the year I visited a considerable number of these 
 schools and examined carefully into their condition and opera- 
 tions. Their increasing number and importance, and the anxiety 
 felt in the villages and more populous districts to adopt the 
 graded plan, demanded that an effort be made to diffuse a 
 more accurate knowledge of their true character and proper 
 organization. 
 
 " The number of union or graded schools, reported by the 
 township inspectors for 1861, was 103: an increase of nine dur- 
 
 *' The latest State Report consulted was that of 1906. The latest 
 School Laws consulted were those of 1908. 
 
 "School Laws of Michigan, 1903, Sections i, 3, and 5. 
 
States that Legalize the Local Payment 99 
 
 ing the year. By an amendment of the law for graded and 
 high schools, approved March i6th, 1861, any district having 
 One-Hundred children between the ages of 5 and 20 years, 
 is empowered to organize, on a vote of the annual school 
 meeting, as a graded school district. The number of districts 
 having this requisite number of children or over, as shown by 
 the reports for the last year, is 235. If the graded school plan 
 possesses the advantage claimed for it, then a true policy would 
 require that the schools in these 235 districts should be organized 
 and taught as graded schools. In all cases, at least, in which 
 the number of pupils in attendance demands the employment 
 of more than one teacher, the school should be graded." The 
 above authority goes on to state that the establishment of a 
 graded school in any section does not necessarily imply the estab- 
 lishment of a high school. This statement wotild imply that 
 many if not most of the graded schools of the period did some 
 secondary work. 
 
 The legislature of 1901 passed an act permitting the establish- 
 ment of township high schools, the same to be supported by 
 local taxation. °^ Evidently there have been no schools organized 
 under this act, since the State Superintendent reports none 
 for 1905-6. 
 
 That the provision for secondary education in the state is not 
 adequate, is evidenced by the fact that of the 13,221 secondary 
 pupils enrolled in the village graded schools of the state for the 
 academic year 1904-5, 4,139 are registered from outside districts 
 and pay tuition." In other words more than 23.8 per cent, of the 
 secondary pupils in attendance upon these schools were from 
 outside districts. 
 
 A tuition law was passed in 1908, which provides that when 
 nonresident pupils attend neighboring high schools they shall 
 pay such tuition as may be fixed upon by the officers of such 
 schools. In case their parents or guardians are tax payers in 
 the high school districts wherein the high schools which they 
 are attending are located, they shall only be required to pay 
 the excess of the tuition fees over the amount of said tax."' 
 Legal provision is also made for any district to levy a tax for the 
 
 " Legislative Act 144. iQoi- 
 
 " Report of State Superintendent of Michigan, 1905, pp. 232-42, 
 
 " School Law, 1908, Section 126. 
 
loo States tJwt Legalise the Local Payment 
 
 purpose of creating a fund to defray the expenses of transpor- 
 tation and tuition arising from the attendance of all of its quali- 
 fied pupils in neighboring high schools.^* 
 
 The establishment of normal training schools has been legal- 
 ized in such communities, having no state normal schools located 
 within their boundaries, as desire to estabHsh them. The state 
 paj's to these schools a bonus of $500 for each teacher em- 
 ployed, provided that any given school may not receive from the 
 state more than $1,000 in any one year.^^ Such schools may be 
 established in connection with other public schools but must con- 
 duct separate classes and employ separate teachers. The State 
 Superintendent reported twenty such schools as being in opera- 
 tion in the state in 1905. 
 
 In 1907^" the legislature legalized the establishment and main- 
 tenance of county agricultural, domestic economy, and manual 
 training schools, at the option of any county or combination of 
 counties. These schools are to be supported by local tax and 
 are free to all qualified pupils of the county or counties support- 
 ing them. 
 
 Idaho: Idaho provides that a pupil may attend any high 
 school located in the county in which he resides free of tuition. 
 Such high school is entitled to receive from the district from 
 which the pupil comes a sum of money bearing the same relation 
 to the amount of money received by the district during the year 
 as said pupil bears to the total school census of the district 
 to which he belongs. '^^ This provision is extremely faulty in 
 that it compels any district supporting a high school to throw 
 its doors open to any pupil in the county who may desire to 
 attend it and yet it provides for but a small fraction of the 
 expense of his instruction. In a more thickly populated state 
 such a provision would swamp most of the high schools. 
 
 Oregon : Previous to the year 1903 Oregon had done little 
 or nothing in the way of making special provision for high 
 schools in the state. Up to this time the only high school work 
 attempted was the addition of a few high school subjects to the 
 
 '■' Legislative Act 190, 1903. 
 
 ^'^ School Laws, 1908, Section 322. 
 
 '"Legislative Act 35, 1907. 
 
 " School Laws of Idaho, 1907, Chapter 39 (Political Code), Section 45. 
 
States that Legalize the Local Payment loi 
 
 curriculum of the common school in a few of the larger and 
 wealthier districts."* 
 
 The law passed in 1903 provides for the establishment of 
 district and county high schools. A county high school may be 
 established by a majority vote, of all qualified electors, cast at a 
 general or special election. Any number of such high schools 
 may be established in any one county. Provision is also made 
 for the payment of the tuition of all pupils of high school grade 
 in the county, in any district high school already established in 
 said county."*' These schools are to be located and established 
 by the county courts and then turned over to the county boards 
 especially provided for by the act. The schools are to be sup- 
 ported entirely by county tax."" 
 
 District high schools are by the same act made an integral part 
 of the public school system, and are to be administered by the 
 district school boards and maintained out of the district school 
 funds which include the state funds. 
 
 In 1907 the legislature provided for the establishment of union 
 high schools in two or more adjacent districts. At the same time 
 it was provided that all district and union high schools should be 
 open to the pupils of such districts as did not maintain high 
 schools. The high school at which any such pupil attends is 
 entitled to collect from the district wherein the pupil resides an 
 amount not in excess of the amount apportioned to said district 
 from the common and irreducible school funds, during the pre- 
 ceding year, on account of such pupil.'^ 
 
 Only five county high schools existed in the state in 1906-7. 
 
 Utah : The school laws of Utah provide that high school 
 subjects may be taught in the common schools. The tuition of 
 pupils may be paid by the districts in which they reside. It is 
 provided that two or more districts may unite for the purpose 
 of establishing a high school and supporting the same. None 
 were in existence in 1904. 
 
 " Report of State Superintendent, Oregon, 1902, p. 228. 
 " School Laws of Oregon, 1903, Title II., Article i. 
 '"School Laws of Oregon, 1907, Title II., Article 2. 
 " School Law of Oregon, 1907, Title II., Article 2. 
 
CHAPTER X 
 
 STATES THAT MAKE NO LEGAL PROVISION FOR THE 
 TUITION OF NONRESIDENT HIGH SCHOOL PUPILS 
 
 ILLINOIS, IOWA, NEW JERSEY, COLORADO, SOUTH DAKOTA, WYOM- 
 ING, ARIZONA, MISSOURI, MONTANA, NEVADA, AND NEW MEXICO 
 
 Illinois:^ In Illinois the study of rural high schools resolves 
 itself largely into the study of township high schools. The first 
 of these to be opened in the state was located in Princeton Town- 
 ship. This school was organized by the people of the township 
 during the year 1866 and was opened in September, 1867 with 
 a membership of 138 pupils. 
 
 During the struggle attendant upon the organization of the 
 school some doubt arose as to the legality of such an organization 
 by the township. To settle all such doubts the legislature of 
 1867 legalized all of the previous acts of the township and passed 
 a bill incorporating the Princeton Township High School 
 District. 
 
 Edward Bangs, assistant to the State Superintendent, says, 
 in the State Superintendent's Report for 1903-4 :^ " The enter- 
 prise from the start met with singular favor at the hands of the 
 people of the district, and the school soon became very popular 
 with the people residing outside of the district. This is shown 
 by the fact that in the first nine years of its existence it received, 
 from pupils residing outside of the township, tuition amounting 
 to over $8,000.00, an average of nearly $1,000.00 per year. Being 
 the only school of its kind in the state, it naturally attracted 
 marked attention and its success was no doubt in part respon- 
 sible for the enactment of the general township high school law 
 in 1872, * * *." 
 
 Section 35 of the school laws of Illinois, enacted 1872 says 
 in part: 
 
 " Upon petition of 500 voters of any school township, filed 
 with the township treasurer at least 15 days preceding a regular 
 
 ' The latest School Laws available were those of 1907. The latest 
 State Reports available were those of 1906. 
 
 ' Report of State Superintendent, Illinois, 1903-4, p. 153. 
 
States that Make No Legal Provision for Tuition 103 
 
 election of trustees, it shall be the duty of said treasurer to notify 
 the voters of said township that an election ' For ' and 'Against ' 
 a high school will be held at the next ensuing election of trus- 
 tees, and the ballots to such effect shall be received and canvassed 
 at such election; and if a majority of the votes at such election 
 shall be found to be in favor of a high school, it shall be the 
 duty of the trustees of the school district to establish, at some 
 central point most convenient to the majority of the pupils of 
 the township, a high school, for the education of the more ad- 
 vanced pupils. For the purpose of building a school house, 
 supporting the school and other necessary expenses, the township 
 shall be regarded as a school district and the trustees shall have 
 the power, and discharge the duties of directors for such district 
 in all respects ; provided, that in like manner the voters and trus- 
 tees of two or more adjoining townships, or parts of townships 
 may co-operate in the establishment and maintenance of a high 
 school, on such terms as they may by written agreement made 
 by the boards of trustees, enter into." 
 
 According to the decisions of the courts at various times the 
 high schools of the state, district and township, are legitimately 
 a part of the common school system of the state. These decisions 
 entitle them to the same state support as the elementary schools.' 
 
 The "privilege of using the state funds for the support of high 
 schools in common with elementary schools has been some advan- 
 tage to such schools. The method of distribution, however, 
 places no premium upon the organization of these schools. The 
 permanent fund of the state consists of a state fund, a county 
 fund and a township fund. The county fund is not, however, a 
 general county fund, but a fund held in trust for the various 
 towns and districts. The following table taken from the Illinois 
 School Report for 187 1-2* will serve to show the proportion of 
 the funds raised by other than strictly local sources : 
 
 Amount of the two mill State School Tax appor- 
 tioned to counties by Auditor $900,000 00 
 
 Amount of interest upon the School, College and 
 Seminary Funds, apportioned to counties by 
 Auditor 54-564 93 
 
 Amount raised by ad valorem tax, in the dis- 
 tricts, for general school purposes 5,292,942 65 
 
 ' Report of the State Superintendent, 1902-3, p. 35. 
 ■* Report of the State Superintendent, 1872, p. 19. 
 
104 States that Make No Legal Provision for Tuition 
 
 Amount of interest received upon the Township 
 
 Funds $528,8" 47 
 
 Amount received upon district bonds, issued for 
 
 building 294,332 90 
 
 Amount received as interest on District Funds 
 
 loaned 82,352 37 
 
 Amount received, borrowed money 220,698 80 
 
 Amount received from sales of school property. 11,207 86 
 
 Amount received for Fines and Forfeitures. . . . 12,946 06 
 
 Amount received from other sources 102,273 72 
 
 The following table is taken from the Report of 1903-4: 
 
 Balance on hand July i, 1903 $431,613 53 
 
 Received from income of township funds 832,304 27 
 
 Received from state appropriation 927,860 83 
 
 Received from district taxes 18,349,638 42 
 
 Received from sale of bonds 862,152 83 
 
 Received from other sources 8,150,228 58 
 
 A glance at the above tables will show that the state aid to 
 public education in Illinois does not amount to enough to afifect 
 to any large degree the secondary schools. The state legislature 
 has since 1873 followed the policy of making an annual appro- 
 priation of $1,000,000 to the cause of education, in lieu of the 
 amount of the two mill tax. 
 
 At the time of the passage of the law of 1872 there were 
 already 88 high schools in the state. All of these were district 
 high schools but one. It is highly probable that not one of these 
 district schools served the purpose of a rural high school since 
 they were located in towns and cities." 
 
 In 1905 an act was passed which provided for a competitive 
 examination to be held in each township of the state whereby the 
 individual of secondary grade securing the highest standing in 
 an examination upon the common school branches was to be 
 awarded a free scholarship in any one of the state normal schools 
 of the state." There were 838 such scholarships awarded in the 
 state in 1906. 
 
 The general assembly of 1907 passed an act which provided 
 that any district board of education not located in a high school 
 
 ' Report of State Superintendent, 1871-2, p. ^. 
 'Act 44, General Assembly, 1905. 
 
States that Make No Legal Provision for Tuition 105 
 
 district, might if it should see fit, pay the tuition of any qualified 
 resident secondary pupil in a neighboring high school, provided 
 that the parent or guardian of such pupil was considered to be 
 unable to pay such tuition.' 
 
 It is perhaps needless to say that such an act will have little 
 direct influence upon the situation and will be of short life, since 
 it rests fundamentally upon a principle of social inequality. Its 
 modification, based upon historic precedent will probably result 
 in an act providing for at least local free tuition in general. 
 
 Up to 1892 but 10 township high schools had been organized in 
 the state, but by 1906 the number had increased to 37. Other 
 rural high schools have been organized in recent years under the 
 joint district plan.' 
 
 The number of high schools in the state has increased from 
 88 in 1872 to 438 in 1906. The attendance in these schools has 
 increased from 11,004 i" 1882 to 52,394 in 1906. 
 
 Iowa:° Iowa has for many years permitted the establishment 
 of graded schools which have served in many instances to take 
 the place of high schools or partially to do so. The same act which 
 legalized the above, provided for the uniting of districts for the 
 purpose of establishing and maintaining higher or graded 
 schools.** 
 
 In 1906 the Superintendent of Public Instruction reported 686 
 graded schools that gave one or more years of instruction in 
 secondary subjects. The total number of secondary pupils en- 
 rolled in these schools was 42,537. Of this number 7,343 were 
 tuition pupils. The proportion of tuition pupils seems exception- 
 ally large, since the above figures show that 17.2 per cent, of all 
 pupils in high schools were registered from outside districts and 
 paid tuition.^" The figures undoubtedly show a need for the ex- 
 tension of high school opportunities. In view of the fact that 
 this tuition is paid by parents and guardians, a low estimate 
 based upon a study to follow would place the number of pupils 
 that are not in high schools but that would be there under favor- 
 able conditions as at least 10,000. 
 
 ' Act, General Assembly, 1905. 
 ' Report of State Supt., 1903-4, p. 154. 
 
 • The latest State Report available was that of 1906. The latest 
 School Laws available were those of 1907. 
 'a Iowa Code, Section 2776. 
 '"Compiled from Report of State Superintendent, 1906. 
 
io6 States tlmt Make No Legal Provision for Tuition 
 
 There are at present fourteen counties in the state in which 
 there are located township high schools." These schools are 
 evidently organized under the " Union of District Law," since 
 there appears to be no special legislation particularly directed 
 to such an end. 
 
 The law has also for many years permitted the establishment 
 of county high schools, but up to the present time there has been 
 but one established. This school is located in Guthrie county 
 and has been in operation for thirty years.^^ 
 
 In his report for 1901-3, Superintendent Barrett says: "In 
 Iowa consolidation has been tried in twenty-eight counties; 
 transportation in thirty-five, and both in nineteen. Sixty-three 
 districts have adopted consolidation, and eighty or more have 
 transported pupils at the expense of the district. In nine counties 
 districts have consolidated without providing transportation at 
 the expense of the district, while pupils have been transported in 
 sixteen counties where there was no consolidation." 
 
 The state aid to public schools in Iowa amounts to little or 
 nothing, there being no income to create a state fund except that 
 accruing from the permanent school fund which in the aggregate 
 amounts to about $215,000. 
 
 New Jersey :^^ The school laws of New Jersey do not defi- 
 nitely provide for high schools as such but they are incorporated 
 into the general system of public schools. The early develop- 
 ment of the system is well put by the State Superintendent in 
 his report 1903, (pp. XLV-XLVI) : 
 
 " Prior to 1867 no attempt had been made by the state to 
 establish a general school system. State and town superin- 
 tendents were provided, but the powers of these officers were 
 limited, and the schools were practically under the control of the 
 local authorities. This was entirely proper, for the reason that 
 the schools were supported, except to the extent of $4,000 appro- 
 priated from the income of the state school fund, by local tax and 
 by tuition fees. The appropriation from the income of said 
 fund has been largely increased and since 1900 has been 
 $200,000 per annum." 
 
 " Superintendent's Report, Iowa Statistics, p. 226, year 1901-3. 
 " Superintendent's Report, Iowa Statistics, p. 193, year 190 1-3. 
 " The latest State Report available was that of 1907 The latest 
 School Laws available were those of 1905. 
 
States that Make No Legal Provision for Tuition 107 
 
 " The act of 1867 did not provide for a state school tax, but 
 authorized townships and districts to raise local taxes for the 
 support of schools. The powers granted to local boards in rural 
 districts by this act have remained practically unchanged." 
 
 "In 1 87 1 an act was passed providing for a state school tax 
 and the schools were then made free to all children in the state. 
 In 1894 the township school law abolishing the small school dis- 
 tricts and making the municipality the unit was enacted." 
 
 It may be readily seen from the above that the opportunity for 
 the organization and support of secondary education dates back 
 to 1871. 
 
 The legislative acts of 1888 provided that the county super- 
 intendent should distribute the state school funds to the different 
 districts upon the census basis, but provided further that no 
 district should receive less than $275.00, and that districts with 
 forty-five children or more should not receive less than $375.00. 
 
 Previous to 1901 the state school tax levy was such an amount 
 as would produce $5.00 per child of school age in the state. The 
 legislature at this time changed this law so that a levy of two 
 and two-thirds mills upon the dollar was provided for the pur- 
 pose. In 1903 the rate was increased to two and three-fourths 
 mills upon each dollar of the state ratables. It has been the 
 custom of the legislature to reduce this rate by annually appro- 
 priating from the state treasury a certain sum of money. In 
 recent years these appropriations have exceeded $1,000,000 
 per annum. ^* 
 
 The revenues resulting from this tax in 1905 were 
 $2,902,292.31, the following year they were $3,172,628.14, and 
 in 1907 they amounted to $4,318,077.70. The great increase 
 shown in the latter item is due to the great increase in state 
 ratables brought about by the assessment of the trans-state rail- 
 road lines. ^^ 
 
 The items making up the available state school funds for the 
 academic year 1906-7 were $200,000.00 appropriated from the 
 state treasury on account of the permanent school fund, 
 $379,423.46 appropriated from the state treasury upon motion 
 of the legislature, $1,110,419.85 appropriated by the above au- 
 
 '• School Laws of New Jersey, 1901 to 1905. 
 " New Jersey School Report, 1907, p. XXVI. 
 
io8 States that Make No Legal Provision for Tuition 
 
 thority to reduce the state school mill tax, and $2,062,208.29 
 collected as state school tax.^" The above items make a grand 
 total for the year of $3,752,051.60. 
 
 Of this amount but the first item, $200,000.00 was appor- 
 tioned to the various counties according to school attendance. 
 The remainder, $3,552,051.60 was distributed to these counties 
 according to their several ratings. This in effect merely reduces 
 the state tax and special appropriations to a compulsory county 
 tax for the support of schools. 
 
 The apportionment of state school moneys within the counties 
 is, at the present time very different. First, there is set aside 
 $600.00 for each superintendent and supervising principal; sec- 
 ond, there is set aside $200.00 for each teacher employed, during 
 the time school is kept open, and $80.00 for each teacher em- 
 ployed during a portion of the year, (not less than four months) ; 
 third, the amount remaining is apportioned among the several 
 districts in the proportion which the number of days' attendance 
 in each bears to the total days' attendance in the county. 
 
 For the three years preceding 1907-8 the state raised by 
 taxation, or upon account of the two and three-fourths millage, 
 an amount equal to 25.5 per cent, of the total amount raised in 
 the state for school purposes by taxation. 
 
 On page 234 of his work entitled " School Funds and Their 
 Apportionment," Dr. Cubberley produces a hypothetical working 
 out of the New Jersey system of distribution of its state school 
 fund. In the presentation it is assumed that the state funds are 
 distributed to the counties upon the same basis that the county 
 distributes them to the various districts. The illustration would, 
 therefore, be true for a county in which the number of teachers 
 employed, the number of days attendance, and the amount of 
 state funds received, each, bears the same relation to the like 
 items for the whole state. Dr. Cubberley's presentation follows: 
 
 " The way this works out may be shown by an example. For 
 1902-3 42% of the total state fund of $2,819,541.48 was appor- 
 tioned on the total days' attendance basis, and the total days' 
 attendance in all schools was 41,540,740. This makes the attend- 
 ance apportionment worth a little less than three cents per pupil 
 per day. Let us call it three cents. To illustrate we will assume 
 
 >' New Jersey School Report, 1907, p. XXII. 
 
States that Make No Legal Provision for Tuition 109 
 
 three high schools, the first, A, a village school, offering but two 
 years of instruction ; the second, B, a town high school, offering 
 four years of instruction in a few subjects; and the third, C, a 
 city high school offering four years instruction in a number of 
 courses. The result then would be: 
 
 School 
 
 Teachers 
 
 Enrollment 
 
 Average daily 
 attendance 
 
 Aggregate days* 
 attendance 
 
 A 
 
 1K2 
 
 24 
 
 18 
 
 3,200 
 
 B 
 
 3 
 
 59 
 
 45 
 
 9,000 
 
 C 
 
 16/2 
 
 447 
 
 325 
 
 65,000 
 
 School 
 
 Value of apportionment on 
 Teachers Attendance 
 
 Total amount 
 received 
 
 A 
 
 $280 
 
 
 $96 
 
 $376 
 
 B 
 
 600 
 
 
 270 
 
 870 
 
 C 
 
 3,280 
 
 
 1,950 
 
 5,230" 
 
 The law of New Jersey is then in operation merely a law com- 
 pelling the various counties to aid in the support of both the 
 higher and lower schools of their own territory by a direct 
 county tax. The provision for the distribution of these funds by 
 the various counties is splendid, and if the same method of dis- 
 tribution were practiced by the state in the apportionment of the 
 funds to the counties the system would be almost perfect, in 
 so far as it relates to elementary schools. Such a system would 
 not, however, be sufficient in so far as it relates to secondary 
 schools, and it would still be less sufficient as a method of sup- 
 port for special and higher schools or universities. 
 
 There has been a fair development in the enrollment in high 
 schools in this state in the last ten years, but the actual relation 
 of enrollment in such schools to school census is still relatively 
 very low as shown by the statistics to be found elsewhere in this 
 study. 
 
 Colorado •}'' The Colorado law provides that high schools may 
 be established by districts, or a union of districts, or by counties, 
 and that they may be supported as other public schools of the 
 state, either by forming a separate high school district or where 
 possible, by remaining a part of the regular school district.^* 
 
 The schools of Colorado are supported upon state, county, 
 and district funds, each raised by separate authority. The state 
 
 "The latest School Report available was that of 1906. The latest 
 School Laws available were those of 1907. 
 " School Laws of Colorado, 1897. 
 
no States that Make No Legal Proinsion for Tuition 
 
 and county funds are apportioned to the various districts upon 
 the census basis. 
 
 In 1906 the State Superintendent reported 10 county high 
 schools,, 8 union high schools, and 73 district high schools, 
 making a total of 91 fully accredited high schools, in forty-five 
 counties.^' There are 59 counties in the state, many of these 
 are, however, sparsely settled. The report makes no record of 
 the many district schools that do one, two, or three years of high 
 school work. The practice of doing certain high school work 
 in the district schools of the state is very common. In some 
 instances this work is, of course, very poorly done while in others 
 it is very well done, as is evidenced by the fact that some of the 
 accredited high schools of the state take the pupils from these 
 schools and rate their work as recommended by their adminis- 
 trative authorities. Most of the ninety-one accredited high 
 schools of Colorado grew out of this expansion of the com- 
 mon schools. 
 
 During the decade ending with 1906 the number of high 
 school pupils in the state has nearly doubled, increasing from 
 4,635 to 8,941. 
 
 South Dakota i^" South Dakota provides for the establish- 
 ment of township and joint township high schools. The act 
 making this provision was passed by the legislature of 1903. 
 These schools are to be supported entirely by local tax, the maxi- 
 mum of which must not exceed ten mills upon the dollar for 
 any one year.^^ 
 
 No schools had been organized under this act by the end of 
 the academic year 1903-4. There are state supported prepara- 
 tory schools in connection with the State University, the State 
 School of Mines, and the Agricultural College.^^ 
 
 The general school laws are sufficiently loose in their wording 
 to permit of the carrying on of high school work in the elemen- 
 tary schools of any district. There were, for the year 1903-4, 
 885 pupils in the state doing high school work in the rural 
 schools."' 
 
 " Report of State Superintendent, 1905-6. 
 
 '"The latest State Report available was that of 1906. The latest 
 School Laws available were those of 1907. 
 
 " Legislative Acts of South Dakota, 1903, H. B. No. 167. 
 
 " Report of State Superintendent of South Dakota, 1902-4, p. 19. 
 
 '' Report of State Superintendent of South Dakota, 1902-4, p. 229. 
 
States that Make No Legal Proznsion for Tuition m 
 
 No legislation relating to high schools, had been passed up 
 to and including 1907. 
 
 Wyoming: "The high schools were authorized by law in 
 1887, when we were yet a territory, and they are receiving uni- 
 versal support wherever situated. The people have confidence in 
 them, for we have now a high school in every county, many of 
 the counties sustaining two or more. The exceptional growth 
 of these schools augurs well for the success and prosperity of 
 the state. The great increase in the number of these schools 
 gives opportunity for nearly all of our children to secure a 
 good secondary edvication and still remain under the influence 
 of the home. They are supplied with the best of teachers, the 
 latest appliances, and are well equipped to turn out a product 
 ready to receive the smooth and finished touches of the State 
 University.^* 
 
 Special high school districts may be created by almost any 
 combination of districts. These schools are called free high 
 schools, but they are free only to the pupils in the special dis- 
 tricts maintaining them.'"' The county high schools receive no 
 state aid. They are free to all pupils residing in the counties 
 in which they are located. 
 
 Arizona: Arizona permits the establishment of a high school 
 in any district or union of districts, having a population of at 
 least one thousand. The law provides that the supervising prin- 
 cipal of each high school shall exercise supervision over the work 
 of the eighth grade in all schools situated in the high school 
 district.^" 
 
 A very few high schools have been organized under the act, 
 so far. The State Superintendent reported but four such schools 
 in 1906. The general school laws do not define the public 
 schools, so that it is possible for a district to do such high school 
 work as it deems best. 
 
 Missouri: The Missouri law permits the establishment, and 
 provides for the local support, of consolidated district high 
 schools. The law provides that an amount not to exceed 20 per 
 cent, of the teachers' fund of the several districts may be set 
 
 " Report of State Superintendent of Wyoming, 1902, p. 50. 
 
 " Session Laws of 1907, Chapter 78, Section 2. 
 
 " School Laws of Arizona, 1907, Chapter X., p. 34. 
 
112 
 
 States that Make No Legal Provision for Tuition 
 
 aside by such districts for the payment of high school teachers' 
 salaries.^^ The above law was passed by the legislature of 1895, 
 and up to 1907 but one such high school had been organized in 
 the state. It is possible under section 9742, Session Acts 1901, 
 to consolidate any number of districts into a union of districts 
 for elementary as well as for high school purposes. It is also 
 legal for districts to transport their pupils at public expense.^^ 
 
 In 1903 the legislature provided for the classification and in- 
 spection of high schools. This act provided no funds for increas- 
 ing the force of the superintendent, but later the legislature 
 provided an increased appropriation for the office of the super- 
 intendent. This resulted in the placing of high school inspectors 
 in the field.^' 
 
 In 1907 the legislature modified some of the sections of the 
 laws which related to high schools so that these acts as they 
 now stand provide for the consolidation of school districts for 
 both elementary and secondary purposes;'" and for the classifi- 
 cation of high schools into, one, schools that give at least four 
 years' work and employ at least three teachers, two, schools that 
 give at least three years' work and employ at least three teachers, 
 and three, schools that give at least two years' work.'' 
 
 The State Superintendent reported, for 1906-7, a total of 333 
 high schools in the state. Eighty-two of these schools belong to 
 the first class, employ three teachers and have four year courses ; 
 forty-four belong to the second class, and one hundred and forty- 
 nine belong to the third class. In addition to these there were 
 about 120 schools in the state that offered some high school work, 
 but usually less than two years. 
 
 Montana: Montana provides for the local establishment and 
 support of county high schools. These schools are free to all 
 residents of the county having the proper qualifications.'^ Stu- 
 dents from outside counties may be admitted but have to pay 
 their own tuition. There were 15 accredited county high schools 
 in the state in June, 1907. There were but 12 accredited city 
 
 " School Laws of Missouri, 1903, Section 9773. 
 
 '* School Laws of Missouri, 1907, pp. 6 and 25. 
 
 " Report of Public Schools, Missouri, 1907, p. 12. 
 
 '" School Laws of Missouri, 1907, p. 46. 
 
 " School Laws of Missouri, 1907, p. 88. 
 
 " Legislative Enactments of 1899, H. B. No. 69. 
 
States that Make No Legal Provision for Tuition 113 
 
 high schools reported for the same year. The Superintendent, 
 however, reported 25 city and district high schools for the year 
 1905-6. A large number of the latter were probably one, two, 
 and three year schools. ^^ 
 
 Nevada: In 1895 the legislature of Nevada passed an act 
 permitting the establishment and support of high schools by such 
 counties as so desired.^* Only one such high school at present 
 exists in the state and that was organized in Elko county 
 in 1906.'* 
 
 New Mexico: The law provides for the establishment of 
 high schools in cities and towns. Such schools are to be main- 
 tained as other public schools are maintained. They are to be 
 administered by the public school boards of such towns and 
 cities.'" 
 
 In 1905 there were only 8 high schools in the state.^" They 
 had an enrollment of 491 pupils. 
 
 The state supports at least two normal schools which serve 
 more or less the function of secondary schools. 
 
 " Report of Superintendent, 1905-6, and Course of Study for H. Ss., 
 1907-8. 
 
 " Report of State Superintendent of Nevada, 1903-4. 
 
 " School Laws, 1908. 
 
 " Superintendent's Report, 1905, p. 7. 
 
CHAPTER XI 
 
 THE PRESENT LEGAL STATUS OF HIGH SCHOOLS IN THE 
 
 SOUTH 
 
 The Southern states are treated in a separate chapter for the 
 reason that their educational situation presents a different stage 
 of development from that of the other states of the Union. 
 
 This condition is the result of many different factors, but two 
 of these, the race problem and the industrial and financial poverty 
 growing out of the civil war are most prominent. As a result 
 of these and other minor causes the most of these states have in 
 the past had more than they could well manage in the attempt to 
 establish and maintain the elementary schools. 
 
 With few exceptions no state reports from this district have 
 been available; as a result of this the present chapter will be 
 largely confined to briefly presenting the present legal status of 
 the high schools of this region.^ 
 
 Maryland: The state of Maryland provides for the local 
 establishment and support of county high schools. The state 
 also provides for the payment of a direct subsidy to manual 
 training departments run in connection with such schools, or 
 separately. 
 
 The law establishing the county high schools has been upon 
 the statutes since 1872, and is in effect as follows: The county 
 school commissioners may accept a high school building provided 
 by any election district or contiguous election districts, and there- 
 after provide for the maintenance of a high school in said dis- 
 trict or districts and the salaries of teachers out of the general 
 school fund.^ 
 
 The act establishing manual training schools was passed in 
 1898. This act in effect provides that when a suitable building^ 
 
 ' The following is a list of the states investigated. The dates of publi- 
 cation of the latest laws available follow in each instance the names of 
 the various states. Maryland, 1908; Virginia, 1906; North Carolina, 1907;: 
 South Carolina, 1907; Alabama, 1908; Tennessee, 1907; Texas, 1907; West 
 Virginia, 1905; Kentucky, 1907; Georgia, 1906; Louisiana, 1907; Mis- 
 sissippi, 1906; Arkansas, ; Oklahoma, 1905. 
 
 'Legislative Acts of Maryland, 1872, Chapter 377. 
 
The Present Legal Status of High Schools in the South 115 
 
 or suitable room or rooms connected with one of the large 
 graded or high schools of the county, shall be provided by the 
 county, the county school commissioners may accept the same 
 and provide for the maintenance of a manual training course out 
 of the general school fund and the state aid provided.' 
 
 The act further provides that the board of school commis- 
 sioners may receive from the state treasury the amount of $1,500 
 to be distributed equitably among the manual training schools 
 and departments of manual training established in the county, 
 as provided for in the act. It also further provided that no 
 entire appropriation for the benefit of any manual training school 
 shall be paid after the first annual appropriation, unless said 
 school shall have had an average daily attendance of thirty 
 scholars for the preceding year.* 
 
 The same act separately provides, under similar conditions, 
 for the establishment and support, by state aid, of colored indus- 
 trial schools." Thus it is possible for any county in the state to 
 receive for the aid of industrial education the sum of $3,000 
 annually from the state treasury. 
 
 In 1908 the legislature passed an act providing for state aid 
 to certain high schools. The requirements are that such schools 
 as receive state aid must be upon the approved list, and must 
 offer in addition to the academic course a commercial course. 
 It is provided that such appropriation shall not be made to more 
 than one approved high school in a county whose total school 
 enrollment for the year ending July 31, 1907 was less than 4,000 
 pupils; nor to more than two such schools in a county whose 
 enrollment for said year was less than 7,500 pupils ; nor to more 
 than three such schools in a county where the enrollment for said 
 year exceeded 7,500 pupils. Provision was also made for four 
 such schools in the city of Baltimore.' 
 
 The amount of the state subsidy is $1,000 per annum to each 
 of such high schools, and the same is to be applied exclusively, 
 to defray the expenses of said commercial course." 
 
 A number of free scholarships are given by the different acade- 
 
 ' Legislative Acts of Maryland, 1904, Chapter 584, Section 112. 
 * Legislative Acts of Maryland, 1904, Chapter 584, Section 117. 
 •Legislative Acts of Maryland, 1904, Chapter 584, Sections 114-18. 
 •General Educational Act, 1908, Maryland. 
 
ii6 The Present Legal Status of High Schools in the South 
 
 mies and seminaries of the state. There were more than 80 
 such given during the year 1904-5. 
 
 All of the counties of Maryland except three, have accredited 
 high schools located within their borders. There is a total of 
 34 accredited high schools in the state, with an aggregate en- 
 rollment, 1906-;?, of 2,555 pupils.'' 
 
 There were 5,277 in high school grades during the academic 
 year 1905-6.* Many of these high schools begin the work with 
 the seventh year, and the seventh, eighth, ninth, and tenth are 
 the high school grades usually found in city schools. 
 
 In 1906-7 eight counties received the entire appropriation of 
 $3,000 each upon account of Industrial and Manual training 
 schools and departments. During the same year each of the 
 thirteen counties received the entire appropriation of $1,500 for 
 the maintenance of manual training departments and schools.* 
 There was at this time but one county in the state that did not 
 receive aid upon this account. 
 
 Virginia: For many years county and district boards of 
 education have been legally permitted to establish and maintain 
 high schools or provide for instruction in high school subjects. 
 These boards were also permitted to charge all pupils a tuition 
 fee of not to exceed $2.50 per month.^" 
 
 In 1906 the general assembly passed an act providing for the 
 establishment and maintenance of high schools in districts and 
 joint districts, and further providing for state aid to such schools. 
 
 The act provides for the inspection of any such school by a 
 competent high school inspector under the direction of the state 
 board of education. When a school has met the requirements 
 of said board, and when the district or joint district establishing 
 the same shall have appropriated annually, from the local school 
 funds, or from privately subscribed funds a minimum of $250.00 
 for the support of such school, the state will appropriate an equal 
 amount, provided, however, that the state will not appropriate 
 more than $400.00 annually to any one school. No state funds 
 will be appropriated under this act unless the said district estab- 
 lishing such high school makes provision for maintaining the 
 
 ' Report of State Superintendent of Maryland, 1907, p. 86. 
 ' Report of State Superintendent of Maryland, 1906, p. 75. 
 • Report of State Superintendent of Maryland, 1906, p. 126. 
 '° School Laws of Virginia, 1907, Section 79. 
 
The Present Legal Status of High Schools' in the South 117 
 
 primary and grammar schools of the district for a term of at 
 least five months in each year. The state appropriation made 
 for meeting the requirements of the act was $50,000.00 annu- 
 ally." This amount was increased in 1908 to $100,000.00.'^ 
 
 The assembly of 1908 passed an act providing for the estab- 
 lishment of normal training departments in certain high schools 
 of the state. Under this act the state board of education is 
 empowered to select the high schools which are to give this 
 instruction. It is provided, however, that no more than one high 
 school may be selected in any one county and the law by implica- 
 tion requires that such a selection shall be made as will best 
 conserve the interests of the rural schools. The maximum 
 amount that may be received by any one such high school upon 
 this account is limited to $1,500.00, which must all be applied 
 to the payment of teachers in such normal department. '' 
 
 Section 130 of the School Laws of 1908 provides an amount 
 of not to exceed $20,000.00 to be applied to the establishment of 
 departments of agriculture, domestic economy, and manual train- 
 ing in at least one high school in each congressional district of 
 the state. 
 
 During the first year of the operation of the high school law 
 of 1906, the number of these schools increased from 74 to 218. 
 The consolidation of rural districts and the transportation of 
 pupils at public expense undoubtedly did much to increase the 
 number of such high schools.'* 
 
 North Carolina : A general provision in this state makes it 
 legal to teach high school subjects in any district school that 
 employs more than one teacher; the expense of such instruction 
 is to be provided for out of the regular public school funds. It 
 is also provided that towns may appropriate money for the estab- 
 lishment and support of one or more high schools within their 
 own confines, or they may levy a special tax for the support of 
 such schools.'" 
 
 In 1905 there were 851 white public rural schools employing 
 more than one teacher each. Eight hundred and thirty-two of 
 
 " School Laws of Virginia, 1907, Section 82. 
 
 " School Laws of Virginia, 1908, Section 130. 
 
 " School Laws of Virginia, 1908, Section 820. 
 
 »* Virginia School Report, pp. 19 and 554. 
 
 " School Laws of North Carolina, 1907, Section 41 13. 
 
1 1 8 The Present Legal Status of High Schools in the South 
 
 these offered some instruction in secondary branches of study. 
 Such work in most of these schools was, upon the whole, not 
 very satisfactory.^® 
 
 The general assembly of 1907 created a new high school law 
 to encourage and aid in the establishment and maintenance of 
 high schools in rural communities. The act is quite similar to 
 that passed in Virginia the previous year. It in efifect provides 
 that when a local community raises, either by gift, by subscrip- 
 tion, or by local taxation a minimum of $250.00 per annum for 
 the support of a high school the state will contribute an equal 
 amount not to exceed $500.00 to any one school and not to in- 
 clude more than four such schools in any one county. It further 
 provides that in order to receive this aid any such school must 
 give instruction for at least five months in the year, must employ 
 at least three teachers, two at least of whom must be employed 
 in the elementary grades, and must pay at least $40.00 per month 
 to each and every one of its high school teachers. 
 
 High schools established in towns of more than 1,200 inhabi- 
 tants are not entitled to receive aid under the above act. Such 
 schools are, however, entitled under said act, to contract with 
 county boards of education for the tuition of nonresident pupils 
 residing in the county or in towns in the county not supporting 
 high schools; provided, however, that such tuition shall not ex- 
 ceed $2.00 per month per pupil. The state in its turn agrees to 
 reimburse such counties in an amount equal to one-half of the 
 amount so expended; provided that the state will not reimburse 
 any one such county in an amount in excess of $500.00 
 per annum.^' 
 
 South Carolina: In 1907 the legislature of South Carolina 
 passed an act providing for state aid to rural high schools. The 
 act provides for the establishment of high schools by counties, 
 townships, unions of townships, unions of districts, and towns 
 or cities with no more than one thousand inhabitants.^' It also 
 provided that any unit of organization of any of the above types, 
 
 " Report of Superintendent of Public Instruction, 1905-6, p. 48. 
 
 " Public High School Law of North Carolina, 1907, Sections 1-9. 
 
 "The limit of 1,000 inhabitants has been ignored by the state high 
 school board, holding that the legislature could not have meant to dis- 
 qualify small towns with a population exceeding this number, (Report 
 of State Superintendent of Education, 1907, p. 74). 
 
The Fresent Legal Status of High Schools in the South 119 
 
 having already an organized high school may participate in the 
 state aid described below, if it reorganizes under the provisions 
 of the act. Any high school district organized under this act 
 may, in order to raise the necessary funds, tax itself in an amount 
 not to exceed two mills upon the dollar. 
 
 Provision is made for the inspection and classification of high 
 schools by the high school board or their authorized agents. The 
 expenses of such inspection are provided for out of the general 
 appropriation made for carrying out the purposes of this act. 
 
 The schools are to be classified as two, three, and four year 
 high schools. All of these schools are to require an equivalent 
 of seven years previous training in the elementary schools as a 
 prerequisite to entrance upon them. They also are required to 
 offer a course in manual training. 
 
 Section 7 of the act provides, " That the State Board of Edu- 
 cation as now constituted, shall constitute the State High School 
 Board. The State High School Board shall provide rules for 
 the apportionment and disbursement of the state aid to the High 
 Schools, giving due recognition to the number of years of High 
 School Work, to the enrollment of pupils, the number of courses 
 of study offered, the amount of industrial training given, and 
 to such other matters of local merit as may appear to the board, 
 after a careful examination of each High School: Provided, 
 That no school shall receive more than fifty per cent, of the 
 amount raised annually by taxation, subscription or otherwise: 
 Provided, further, That no school shall receive aid unless it has at 
 least twenty-five pupils and two teachers in the High School de- 
 partment : Provided, also, That no school shall receive more than 
 twelve hundred dollars annually from the appropriation provided 
 in this act : Provided, further. That no county shall receive more 
 than five per cent, of the annual appropriation provided for under 
 this act." Five per cent, of the annual appropriation of 
 $50,000.00 amounts to $2,500.00, the maximum amount that may 
 be received under this act by any one county. 
 
 It is provided that tuition shall be free to all qualified pupils 
 in any county wherein any such school may be located.^* 
 
 By July I, 1907, fifty-eight high schools had qualified under the 
 act, while numerous others failed to qualify in certain respects. 
 
 "Legislative Acts of South Carolina, 1907, An Act to Provide High 
 Schools for the State. 
 
120 The Present Legal Status of High Schools in the South 
 
 Mr. W. H. Hand, High School Inspector for the jnear, in his 
 report says in part:^" 
 
 " The fifty-eight high schools established under the high school 
 act are distributed among twenty-eight counties, leaving thirteen 
 counties that have not availed themselves of any portion of the 
 state aid. 
 
 " These high schools represent in the aggregate one hundred 
 and nineteen school districts and six townships voting the high 
 schools. Of the fifty-eight high schools, twelve of them levy a 
 special tax for the support of the high school. Twenty-eight of 
 these high schools are located in rural communities or in towns 
 of fewer than 500 inhabitants; fifteen of them are in towns of 
 more than 500 and fewer than 1,000 inhabitants; eleven of them 
 are in towns of more than 1,000 and fewer than 2,000 inhabi- 
 tants; while only four are in towns of more than 2,000 
 inhabitants. 
 
 " The appropriations made by the State Board under the high 
 school act amounted to a little more than $28,000.00, ranging 
 from $222.00 to $800.00 to each of the fifty-eight schools. "Every 
 school receiving the state aid had in some way increased its 
 efficiency — by additional teaching force, or by additions to the 
 course of study. Almost without exception the high school 
 attendance has been increased, because the tuition is free to any 
 high school student in the county. In several instances the high 
 school attendance has increased fifty per cent., and in a few 
 it has doubled. This does not take into account recently estab- 
 lished schools where none previously existed. 
 
 " In the smallest of these high schools, those with the minimum 
 of 25 high school pupils, there are at least eight months of 
 teaching being done, and that teaching must come up to a reason- 
 able standard of excellence or the appropriation will be 
 withdrawn." 
 
 Alabama: The School Laws of Alabama provide for the 
 establishment and maintenance of one county high school in any 
 such county, — not having in its confines an agricultural school, a 
 normal school for white people, the Polytechnic Institute, the 
 University of Alabama, the Industrial School for White Girls, or 
 a high school free to all the children of the county, — as builds and 
 
 " Report of the State Superintendent of South Carolina, 1907, pp. 74-5 
 
The Present Legal Status of High Schools in the South 121 
 
 equips a high school upon a plot of land of not less than five 
 acres, the whole to cost not less than $5,000.00, and as deeds said 
 building, its equipment and the five acres of ground upon which 
 it stands to the State of Alabama. 
 
 The state upon its part agrees to pay to any such school for 
 the purpose of the payment of teachers' salaries in said high 
 school the sum of $2,000.00 annually, the same to be paid out 
 of any funds in the treasury not already otherwise appropriated."^ 
 
 Tennessee: In 1899 the legislature of Tennessee passed an 
 act providing for the establishment and maintenance, at the 
 option of the county courts, of one or more high schools in each 
 county of the state, the same to be supported in whole or in part 
 by a county high school fund to be raised by a tax of not to 
 exceed fifteen cents upon each one hundred dollars of taxable 
 property in the county. 
 
 It is also provided that counties may combine with seminaries, 
 academies, colleges, or city boards of education within their 
 respective boundaries for the purpose of establishing and main- 
 taining high schools. All such schools must, however, be free 
 to all the properly qualified secondary pupils within the bounda- 
 ries of said counties.''^ 
 
 The public schools of Tennessee are divided into but two 
 classes, namely, primary and secondary schools. The primary 
 schools include the first five grades, and the secondary schools 
 begin with the sixth grade. 
 
 All high schools established, administered, and receiving state 
 aid under the above act must employ at least three teachers. 
 
 County boards of education are permitted to contract with 
 city high schools or private secondary schools for the education 
 of the pupils of high school age and qualification, residing in 
 their respective domains. Such tuition as has been agreed upon 
 may be paid out of the school funds of the various counties, 
 provided that the same may be done without shortening the 
 school term in these counties or decreasing the salaries of their 
 primary teachers."^ 
 
 A special act of 1907 provides for the acceptance by county 
 
 *' School Laws of Alabama, 1908, Article 20. 
 
 " Public School Laws of Tennessee, Title, County High Schools, pp. 
 30-34. 
 
122 The Present Legal Status of High Schools in the South 
 
 high school boards of the properties of academies and small 
 colleges, if the same are tendered them.''' 
 
 The general school laws of the state have for many years per- 
 mitted the establishment and maintenance of secondary schools 
 in districts upon exactly the same basis as primary schools. 
 
 Texas: The high schools of Texas are legally an integral 
 part of the public school system, and are supported and adminis- 
 tered as public schools. It is required, however, that in towns 
 and cities which extend the scholastic age beyond seventeen, 
 the legal age, a tax for school purposes must be levied and 
 collected.^* 
 
 The state raised in 1904-5 sixty-four and nine-tenths per cent, 
 of all of the available school funds, and six and three-tenths per 
 cent, was raised by the various counties, leaving twenty-eight and 
 eight-tenths which was provided by the local communities. These 
 funds were apportioned by the state to the counties and by the 
 counties to the districts upon the school census basis. The 
 school census of Texas includes all children in the state between 
 the ages of seven and seventeen. 
 
 West Virginia : The laws of West Virginia permit the estab- 
 lishment of district and joint district high schools, the same to 
 be supported, where necessary, by local taxation. These schools 
 when once established may not be abandoned except upon a 
 petition signed by 75 per cent, of the taxpayers of the district.^' 
 
 A high school may be established in any district which has 
 within its borders a town which has four or more schools in the 
 same building. Such school when established shall be open to 
 all of the qualified pupils in the district, and it shall be supported 
 by a tax levied upon all of the taxable property in the district. 
 This tax may not, however, exceed for the payment of teachers' 
 salaries 25 cents upon each $100.00 of evaluation, and for build- 
 ing equipment, etc. 15 cents upon each $100.00 of evaluation.'* 
 
 Kentucky : " In Kentucky the high school is, where it exists, 
 organized under the law providing for graded schools. It is 
 
 " Public School Laws of Tennessee, Title, County High Schools, p. 76. 
 *'' School Laws of Texas, 1907, p. 151. 
 
 ^' School Laws of West Virginia, 1908, Chapter XLV., Section 30. 
 " School Laws of West Virginia, Chapter XLV., Section 28. 
 
The Present Legal Status of High Schools in the South 123 
 
 safe to say that the rural pupils have no high school facilities in 
 the state."" 
 
 Georgia: No special mention of high schools is made in the 
 laws of the state. Where such schools exist they are a part of 
 the public school system. There were in 1906-7 one hundred and 
 four accredited high schools in the state. These schools are com- 
 posed of two classes, middle and senior high schools with three 
 and four year courses above the seventh year respectively.^* 
 
 Louisiana : In this state graded and central high schools may 
 be established by the parishes. The establishment of these 
 schools must, however, be ratified by the state board of education. 
 The site of such schools must be donated, and suitable buildings 
 must be provided for, without any expense to the regular 
 school fund.^* 
 
 Mississippi : The school laws for this state were not available, 
 but in 1905 the state superintendent reported 68 high schools of 
 a grade sufficient to prepare students for the university. These 
 schools are located only in the larger incorporated towns. The 
 Superintendent further states that only about 6 per cent, of the 
 white children of the state are within walking distance of a 
 high school.'" 
 
 Arkansas: This state makes no special provision for high 
 schools. Such schools where they exist are a part of the public 
 school system. They may be included in any district system at 
 the option of the local authorities. 
 
 Oklahoma : Districts may add high school departments to 
 the elementary system at their option. Counties may also estab- 
 lish high schools. ^^ The superintendent reports two county high 
 schools in 1908. 
 
 " Report of the Superintendent of Public Instruction of Kentucky, 
 1907, p. 23. 
 
 " Report of the Department of Education, 1907, pp. 208-209. 
 " School Laws of Louisiana, p 20. 
 
 "Report of the State Superintendent of Mississippi, 1904-5, p. 11. 
 " School Lav/s of Oklahoma, 1905. 
 
CHAPTER XII 
 
 SOME HIGH SCHOOL STATISTICS AND THEIR PROBABLE 
 
 MEANING 
 
 The statistics presented in this chapter were compiled and 
 deduced from statistics published in the various reports of the 
 office of the United States Commissioner of Education for the 
 years indicated. They are presented in order to show as far 
 as may be; first, the present status and stage of development of 
 secondary education, and particularly high school education in 
 cities in each state, in rural communities, and in the state as a 
 whole; second, to show what influence, if any, recent legislation 
 and state aid has had upon the establishment, maintenance, 
 attendance, and efficiency of rural high schools in particular, in 
 each of the states. 
 
 The interpretation of such statistics can upon the whole only 
 be tentative since they are not of uniform reliability, and since 
 there are so many unknown complicating factors that must enter 
 into any such interpretation. In view of these facts it has been 
 deemed essential to print them in full, thus giving each reader 
 the opportunity not only to check up the basis of interpretation 
 made by the writer, but also the opportunity to interpret them 
 according to the light which an intimate knowledge of local con- 
 ditions in certain states may present to him. The partial inter- 
 pretation which is to follow their presentation will then be tenta- 
 tive and based only upon such facts as may be in the possession 
 of the writer. While not claiming absolute accuracy an interpre- 
 tation based upon a knowledge of certain definite facts is, upon 
 the whole, more likely to be correct than one based upon no 
 such definitely known facts. This then will constitute the excuse 
 for putting forth such tentative generalizations as may not appear, 
 to some, to take into account all of the possible influencing 
 factors. 
 
 The first three vertical columns of figures, not including the 
 dates, were taken directly as they are from the commissioners' 
 reports. The census figures, 5-18, in the fourth and fifth columns 
 are, with the exceptions of those for New Jersey and Minnesota, 
 approximations secured as follows: The per cent, of school 
 
Some High School Statistics and Their Probable Meaning 125 
 
 census children residing in the cities of 8,000 or more inhabi- 
 tants was secured for each state. Having secured this per cent, 
 the percentage of the approximate census, 5-18, for the state, 
 found in the commissioners' reports was calculated and placed in 
 column four. Column five contains the difference between the 
 total approximate census, 5-18, in the state for each given year 
 and the total approximate census, 5-18, in the cities of the state 
 for each given year. In a few of the states it was necessary to cor- 
 rect the census of certain of the cities by reducing to the census 
 age for the state as a whole. This was done by securing from the 
 United States Census Reports of 1880, 1890, and 1900, the aver- 
 age number of children of each year age, and correcting it by 
 adding three successive years and finding their average, and using 
 this average as the middle year of the three. A table was then 
 formed giving the average number of children for each year 
 age to each 1,000 of population. With this table and the popu- 
 lation of a city it was possible to reduce the school census of such 
 city to the same basis as that of the state. Since Minnesota takes 
 no school census it was necessary to use the total population of 
 the state and the sum of the populations of the cities in the state 
 for each of the years in order to divide the approximate census, 
 5-18, into the two items in columns four and five. The same 
 procedure was followed for New Jersey for the years 1900 to 
 1906. The figures in the three columns including the secondary 
 and high school enrollments were taken directly from the com- 
 missioners' reports. The figures in the remaining five columns 
 were deduced from those of the preceding five columns. To 
 secure the first two of the last five it will be necessary to add the 
 two census columns and also the two high school enrollment 
 colunms. The figures in the middle column of the last five repre- 
 sent the differences secured by subtracting the figures in the 
 second from those of the first column of the five. 
 
 An attempt was made to secure similar figures for New York, 
 Pennsylvania, North Dakota, and South Dakota, but these were 
 apparently so unreliable that the attempt was abandoned. The 
 chief difficulty was with the school census statistics for the larger 
 cities in these states. 
 
 A certain number of inaccuracies is evident in these figures, 
 but they do not upon the whole vitiate the value of the statistics 
 since in most instances they occur only in a single year and do 
 
126 Some High School Statistics and Their Probable Meaning 
 
 not affect the general direction of the curves of development, 
 and since they are largely errors of census, the secondary and 
 high school enrollments usually remaining fairly constant in their 
 development. Certain large and sudden changes in the direction 
 of the curves of relative secondary and high school enrollments 
 may be explained by a reference to the figures and their source. 
 To illustrate : We find in the curve of relative high school enroll- 
 ment in cities of Massachusetts a sudden drop for the year 1904 ; 
 referring to the statistical table we find that the high school 
 enrollment has not only increased, but it has increased more 
 rapidly than usual, while the census has increased twenty-seven 
 per cent, in one year, and has decreased fifteen per cent, the 
 following year. In the curve of relative enrollment in high 
 schools in cities in Kansas for the year 1899 we have a somewhat 
 similar condition only in this case a large increase in the enroll- 
 ment in city high schools occurs and at the same time a very 
 great decrease in the census. 
 
 The unreliability of the school census figures may be due to 
 one or both of two different causes, namely, the carelessness of 
 those responsible for the collection of them, or the actual padding 
 of them when such a course might prove of financial advantage 
 to the local communities. The former is probably much the 
 larger factor though numerous cases of the latter are a matter of 
 record. 
 
 It would then be possible in most cases to reduce the curves 
 resulting from these figures to a fair amount of constancy with- 
 out changing their real meanings, but this will not be attempted 
 for the reason that no single rule of procedure would apply 
 equally to the different cases without misrepresenting the actual 
 situation. For instance, the first case given above, that of Mas- 
 sachusetts, could probably be best corrected by passing the curve 
 directly through the two including points and ignoring the point 
 at issue, while the second case, that of Kansas, could probably 
 be best corrected by passing a broken line through the two in- 
 cluding points, raising it slightly at the point at issue. A smooth- 
 ing of these curves by any other method would lead not to an 
 elimination of the error but to a covering of it. It might on the 
 other hand be better to correct such curves as those representing 
 the relative high and secondary school attendance in California 
 "by some of the averaging methods. 
 
Some High School Statistics and Their Probable Meaning 127 
 
 The greatest drawback to be found in considering these figures 
 is, that they do not extend back far enough. The figures for 
 total secondary enrollment and total approximate census, 5-18, 
 for each of the states under consideration were secured as far 
 back as 1891. These figures were treated as suggested above, 
 and a partial statement of the result is to be found printed with 
 the statistics of each of these states. The separation of the 
 figures for cities and communities outside of cities could not be 
 made further back than 1897 because of the lack of proper data. 
 Since much of the legislation directed to the end of extending 
 rural secondary educational opportunities was passed previous to 
 this time, it will be impossible fully to observe the effects of such 
 legislation upon the statistics for rural high schools. 
 
 A more complete statistical expression of the growth and con- 
 dition of rural secondary educational opportunities would have 
 been possible, if the statistics of cities or towns of from 4,000 to 
 8,000 inhabitants could have been secured. This was, however, 
 not possible. Nor were the units of organization of high schools 
 in the various states given until igo6. Statements of the num- 
 bers of high schools, existing under the various units of political 
 organization, that directly affect the problem of rural secondary 
 education, are given in a note accompanying the statistics for 
 each state. The number of department or city high schools arc 
 not given in this note. 
 
 A comparison of the following statistics with those presented 
 in the various state reports will show in some instances a con- 
 siderable disagreement. It was, however, deemed best to take 
 these statistics from a single source, since in this case, having 
 been gathered upon uniform blanks sent out by the office of the 
 Commissioner of Education, they should represent a large degree 
 of similarity between the different states. 
 
128 Some High School Statistics and Their Probable Meaning 
 
 ^ ft 
 
 'gi-S 'snsuao 
 JO ooi ^o■Ba o% sai^p i[ons jo apis 
 -^no sjidnd poiio's \Sin jo jaqum^ 
 
 O, w CO M fiW CO 00 « 
 
 'snsuao jo ooi qoBa oq. sshid hdus 
 
 »o t^ a o. M M tfloo 
 
 •gi-S 'snsugo 
 JO OOI qoBa Q* sirdnd [oottos tiSiq 
 uBUi jamo XJ^puoogs jo jaqiim^ 
 
 H O.00 \ry r-o o o t^ m 
 
 'snsuao jo ooi qona o^ siooqos ^3l^ 
 IIB ui p9[pjua siidnd jo jaqumj^ 
 
 ^nM^.N«^0 OcotKi 
 0rOThM«i*Tj-0rC0 
 
 »o m lO »o lo «/i tosO « « 
 
 ■gi-S 'snsuao jo ooi iio-ea oi psuoj 
 -ua sjidnd i^j-epuooas jo jaquin^ 
 
 (HOO W OlOlCOM Mt^M 
 
 t^ t^ r.\o o r» t^ t-oo r- 
 
 •sai^p qous jo apis^no 
 sjooqas qSiq ui ^uaui[toJua' ibjoj. 
 
 « PO CO M « l^« t*500 
 *^>o Oi t^ ^ o>oo r- w> r* 
 w ^\0 1> toco M Oi rO O 
 
 «0'0'0'0\0'0\0'0 r^o 
 
 ■slUB!^lqB^^^ ajoui jo ooo'g jo sanio 
 ui siooqos qSiq uj ^uauijiojua ^b^ox 
 
 lO »0 ■* tflOO VO Oi «00 HI 
 O O ^ »^ t>- r-iO w 0*00 
 OMwaoiOir^OOO. 
 
 «W«HMMW«fOM 
 
 's[ooqos }0 sadAi ;ib ui pa^ojua 
 sjtdnd AjBpuooas jo aaqumu le^ox 
 
 Sf O (^ l-t ^00 w »o H t^ 
 t^ <*■ M ffJOO O O ^ t^ (O 
 O t^OO Tj- M \r,\0 O ^-t 
 
 •sajip qons jo apisq,no gi-S 'uajp 
 -(iqo snsuao jo jaqiunu a:i.'Bxuixojddv 
 
 M o W o> «O00 "O *o to 
 ^Ot^^O-OOr^OiHW 
 
 
 
 ■sat^p qons uimiAi gi-S 'uajp 
 -Xjqo snsuao jo jaq'uiriu a^Bunxojddv 
 
 o w 00 O'O tn & »ooo M 
 loNaMHoo.mN'o 
 
 O 'tH00>OCO«00iO(*) 
 
 vo \o o aoo 00 a o> a M 
 
 •soi^p qons p apts^no looqos 
 aq^, 0^ siaqoBa:^ jo jaqumu aBBjaAy 
 
 0000 Ovo>aMoowM 
 
 MHHHI-INetCI«(N 
 
 •sai:^io qons 
 JO apisino siooqos qSrq jb'jaqum|j 
 
 (N looc o to t* H t^ •* T^ 
 
 •S!juB5.iqBqui ajoiu jo ooo'g 
 JO saiip UI s'poqos q3iq jo jaqiun^ 
 
 O. 0> OOO 00 00 W M IH M 
 
 i 
 >< 
 
 
 
 
 t^oo' a o M N po 'J- »o\o 
 Oiaoooooooo 
 
 OOOOOO 0>0>OiOiOiOiO« 
 
 bo '^ 
 _C ^ 
 'm O 
 
 u 
 
 If 
 
 go CO 
 
 6 ■§ fi 
 
 "I S 
 
 •S ^ a 
 
 ^ o " 
 
 s 5 .1 
 
 ai o u 
 
 *-i O 
 
 rt Ik «i; 
 
 0) ID t^ 
 
 .« I E 
 
 en B O 
 
 .S ^ g 
 
 •a ■" .5 
 
 cj ■* rt 
 
 jj ,o B 
 
 ft O M 
 
 .J3 « 0*0 
 
 ** NO OS 
 
 O S CJ rt 
 
 •" o ".H 
 
 a * -S" 
 
 ' 0) ^ > 
 
 ^ .g fi+3 
 
 ^* s as 
 
 <l> 5 € K 
 
 ° s -o-s 
 
 o ■^ 3 rt 
 
 j3 :- .a-a 
 
 (S "u 'S ft 
 
 (DOT {2 
 
 o ^ is 
 
 •" b B* 
 
 a .S „o 
 
 3 2 "*' 
 
 £• J5 -ni: 
 
 •S § .a| 
 
 (U r! ''Oti 
 
 O ^ njT 
 
 i? t- M QJ 
 
 <u 0) a) « 
 
 ^ § l-g 
 
 •" o a, >. 
 
 n 2 o o 
 •« c H o> a\ 
 
 .12 .J: . . 
 
 S.sS'SSS 
 
 CO 
 
 « ca 
 
Some High School Statistics and Their Probable Meaning 129 
 
 * t^ r^ <^ Ov Ov 
 
 C. 
 
 
 CO »n 1/1 (O t^oo t* o- M «o 
 
 E 
 
 
 ^ ui witn tn u", irt ^yO 
 
 i 
 
 
 O&OOOMf/jO-OO 
 
 
 
 HOMMMHMOMM 
 
 1 
 
 
 00 f*!* 00 M ■* fO 
 
 w * ^<i H >-< t^r^ M 
 wi 10 10 ui^o -O vO r- 
 
 
 
 VI 000 m « w c OiO 
 
 
 \0>o<o>o rN,t*r-rH r-00 
 
 
 
 
 
 O>00 OOOOOOniHiH 
 
 
 (O lO'O w lo r- (*) 
 
 1 
 
 00" 
 
 n 
 
 
 
 M t- (o w (^ 1^00 CO 
 
 
 g B 
 
 
 0> r^ '4- n (*joo 00 10 10 -* 
 
 (*J * POO ^ 1^ M (^ t^OO 
 r^O 10 f rO ro M H M 
 
 "3 
 
 
 
 
 M 
 (0 
 
 
 
 t»)«*c*)*>0 M-O w 
 w Oi -^OO 00 « CTOO 
 
 ,2 S 
 
 Si ,g 
 '^ . « 
 
 V U to 
 
 »H (*: ^ o o 00 (^00 r* 
 «*) ^000 Oi Oi w r^>o *n 
 ^ * ^ -* * * WTO m m 
 
 O>oo 00 o> N c« ^ r«o t^ 
 M ti « « m "i Tfi rfi n r*i 
 
 o .c 
 
 M«NNW r^ron f)»0 
 
 OOOOOwOOOO -S 
 
 >. ^ 
 
 «fO*Ornr^(0»^fOfO*n "C 
 
 i^ 
 
 r-00 Oi O M « fO * wo 
 
 0,0,00 000000 
 
 OCOOOO 0>0>0>OiO>0>0> 
 
 
 
 
 
 
 
 
 
 
 
 
 ^ - 
 
 
 
 
 
 
 c«ciooi»^ONir>)Or«) 4> ♦* 
 
 
 
 
 
 
 
 
 
 
 «*) *0 *fl »0 <n (*3 r*l ro ^ ■* t- 
 
 a 
 
 
 
 :il 
 
 
 
 
 
 
 
 
 00 « Oi 1000 liT* M M ? 5 
 
 
 
 
 tn 100 rooo DO Oi 0> <N 
 
 tH H 
 
 "2" Si 
 • A- S 
 
 
 c8 
 
 
 «n rOQO 10 « « *.( fo « ^£ 
 
 
 
 •— > 
 
 000«00OO9ii/)iHr 
 N n- ■* 100 t". t^ r- Oi < 
 
 : 1 g 
 
 1^ 
 
 ^ 
 
 M w r«.so ei « so tH on H 
 
 a a 
 
 »O00 vj ui » >■ 
 
 S 5 
 
 11 
 
 ft 
 
 « M (O tn loO 1- 
 
 t^ moo ro »o M t- (*300 
 
 " s 
 
 0*r»O0 0>OiOiC 
 
 J3 
 
 aa 
 
 
 
 T) 
 
 s s 
 
 K 5 K 
 
 ll 
 1| 
 
 
 M r* too 00 t^Tj-so a 
 
 
 
 
 000 lor^oooo omx 
 
 a -S 
 
 
 «itiHO.00N«O«( 
 
 
 
 
 
 .»;; 
 
 
 
 - t iS 
 
 II 
 
 
 (O t m - « f^ lo »ooo *o 
 
 ^ '8 
 
 
 fO fO to *f) *0 (*) (O <0 (O ^ "S 
 
 
 
 " 
 
 0^ 
 
 
 
 *.-s 
 
 
 >ot»-.0'r*ior-ni«*iio «*- •3' 
 
 
 tn>o <0 « >0 r- r« r^ O ^ 
 
 
 
 i! h 
 
 ■J-UH 
 
 
 
 
 
 
 
 •9 ,= 
 
 =gi 
 
 
 
 
 M M r^oooo aoo r 
 
 
 «««««« (0«Wco g 4J 
 
 Sg 
 
 
 
 
 
 
 ■ 5 g 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 .3 .-S 
 
 4|! 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 .i-a^ 
 
 3« 
 
 H 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 4) w a, 
 
 
 
 
 
 
 
 
 
 
 
 
 
 ^"Ms£ 
 
 
 
 
 
 
 
 
 
 
 
 
 . .-o . _ 
 
 
 
 
 
 
 
 
 
 
 
 
 C"-"? 
 
 s'^r* 
 
 
 
 
 
 
 
 
 
 
 
 
 
 i 
 
 
 tvOO Oi M « (*3 Tt «/)>£ 
 
 .S 
 
 
 0,00i000 000( 
 
 
 OG 
 
 H 
 
 00 
 
 OG 
 
 a 
 
 H 
 
 ^C 
 
 ^0 
 
 a 
 
 
 
 ^0 
 
 C 
 
 ■c 
 
130 
 
 Some High School Statistics and Their Probable Meaning 
 
 n 
 < 
 
 ■gi-£ 'snsusD 
 JO 001 XJDB3 o; S3HP nons JO apis 
 -^no sjidnd [oonos ijaiii jo jsqumj^ 
 
 W « « t*i»it*i^ ^ViVi 
 
 •snsuso JO 001 nD-BB o^ saii.p nons 
 in sjidnd lootios uSiq p ' jaquin^ 
 
 ■gi-S 'snsusD 
 JO 001 nDBa o^ sjidnd looqos q3jq 
 UBm jaq^o jUBpaooas jo jaquinj^ 
 
 *snsu3D JO 001 noBa o^ sponos qSiq 
 IIB in pa|;ojU3 sjidnd jo jaqiimji^ 
 
 •gi-S 'snsuao jo 001 ijobs o^ psnoj 
 -ua sjidnd Ajcpuooas jo j3quiTX|»j 
 
 ■sai^p qons jo apis^no 
 spoqos qSiq in* ^uauinojua' ibjojl 
 
 's^u-B^iqBqin ajoin jo ooo'g jo sai^p 
 ui siobqos q3iq uj ^uauinojua x&^oj^ 
 
 ■siooqDs JO sadX^ we in pa^pjua 
 3|idnd XjBpuooas jo jaquinu ib^ojl 
 
 •saT^p qons jo apis^no 'ri-S 'najp 
 -]Tqb sTisuao jo jaquiriu a^Bunxojddy 
 
 'sai^p qons oiq^tAi. 'gi-S 'aaip 
 "liqa stisuao jo jaqumn a^Bonxojddy 
 
 •saup qons jo apis^no poqas 
 aq) O) siaqo-ea) jo jaqiunu aB-ejaAy 
 
 ■sai^p qDns 
 JO apisino siooqos qStq jo'jaqxun|»i 
 
 ■siUB^iqBqut ajoiu jo ooo'g 
 JO sai^p in sfooqos* q3iq jo jaqumjq 
 
 < 
 
 * * -* (^ ^ u 
 
 
 «) e*) (O (*J ^ * "1 vnO >0 
 
 J3 
 
 ^ ^ ■* * 10 IO« I 
 
 line* w Muij-M ^ m 
 r <f >o « w •* »« M \o o 
 
 ^ 1/1 i#tO t>. tr^cC Oi O H 
 
 „ ^ 
 
 (*S«0 & O iH o w w rj-co 
 ro M O O >H ro WOO »/:00 
 
 iflOO *0 to *C0 » t^ * O. 
 fo to w, r- o Oi « to'O N 
 « u^^moOOO moi'*'* 
 
 ^vo 10 r-00 ©■ to «ooo N 
 
 H4HHHM>HNC«C4rO 
 
 ^ « PO Oi « 1000 ■* Oi t^ 
 o o o o 00>0>00>0> 
 
 nMnOMHHMMH 
 
 V 
 
 If 
 
 O 
 
 fa 
 
 lii t^^O r-io't'^O.ioi- "2 »0 Tl" 
 
 00 »« r-« 0> r- O »o t W 3 . 
 
 -.---..... p, w J-*»^ 
 
 t-oo » o >n « to w m a 3 * q.C 
 
 Tf 1 1 10 10 utO r^ r- r- p, ^ 5;^ 
 
 MMMHHMHMMM ^ ^^ 
 
 ^ o „ o. 
 
 w torn rOfOfO to t ^ t 3 "" '^ti 
 
 ^ !> "I 
 
 M OOO W M o tH TJ-OOOO O "^ "o P 
 
 r.r-r-.O'OO'HMNN |_^ 'C^ 
 
 ^ S ^Z 
 
 s « ""g 
 
 MMHMHMHNMCt C *^ *^ V 
 
 0) Si " S 
 
 * ° SY 
 
 : : ■ : : .E -^ &>■ 
 
 ; : : ■ : : : : « '-od s* <u 
 
 to QJ*' (U > 
 
 S -Q O^ 0) 
 
 :::;:::::: K £■»*-« 
 
 y J 300*0 o 
 
 -S^c^oo 
 
 00 -°^^ 
 
 «M(l)C'-'« 
 
 :::::::::: h.Sh^^S^ 
 
 -O T) 
 
 .......... • W . 0) . . 
 
 •' •HtONrt f^*^ 
 
 r^DO Qi O H M ro ^ m>C C cl 
 
 OOOOOOOOOO E O 
 
 'oooooo Oi o>o oa o> o- P u 
 
 MHMMMHMMMM »fc, •O 
 
Some High School Statistics and Their Probable Meaning 131 
 
 
 (OH rOM H« OHO 
 
 
 M M « *«JfO»*»(«J*** 
 
 
 « 00 CI <o 00 r- r-00 h >o 
 H OiHiooo -^ O'Viin 
 
 
 « t*oo t* lo t^-o r-M 
 
 
 noo ■-t-*c»oo H -ifo »^ 
 
 t^>0 NO 0> O>00 O H H W 
 
 
 OOOOOOQmhO 
 
 
 « « H ^* w «0 «n ■*« 00 
 r-oo 0^0 Ohm -^foo 
 
 
 ff5iO**'l'*>o>n««io 
 
 
 »0 H ro *«o 00 m 
 ui ino Oi »« O" n*nt^ 
 
 
 * ■* ^ VI 10 ^*0 >0 "O 
 
 
 •*00 M &'tt*fON»^Oi 
 00 r- H ^00 « N »o« « 
 
 
 WHMNWMfOr*)*Of*> 
 
 
 W * « *« H ro H 
 
 0>Tf*H ioior-H>o m 
 
 t- H fo ■<r'0 M H -* w 
 
 
 w mn»Of*)»o**'*>n 
 
 Table V. 
 COLORADO 
 
 «*)>0 0» ©"OO o> <o »o « 
 0>H «oo »rt H t>.^-. 
 '0 t* **> t* *« r*j t- « 
 
 ui »oO P- P* r»00 Ov Oi 
 
 H 
 
 iH tiioo »n 000 H i>. ro w 
 OOOOTj-WOOlOCt OiOP- 
 >00 0»OH -^MOO 10 t^ 
 
 00 (ooo o> ■* ►- •«»■ ^o 
 
 t^oo 00 r* o> 000 00 00 Oi 
 
 
 00 tnn uiO-O ■*« 0-* 
 H<4-MM^n>0 OHf* 
 « 000 ■♦m-*Mio.'*M 
 
 
 V) •n>0 0\'0 & t^OO Ot M 
 
 
 **> M «0 H m p-oo « f) 
 
 
 fO»OfO*0'0«o»*)(*}^^ 
 
 
 H o>0 ^Ooo ■"ttcw « 
 COM MfO^l*)'*^^'* 
 
 
 OOmOOiOlOOOh 
 
 MHMH „MHH 
 
 .a 
 
 J3 
 
 I 
 
 ■2 1 
 
 & 8 
 
 a A 
 
 I § 
 
 S " 
 
 q n 
 
 5> 
 
 I- 
 
 0)^ 
 
 O'P. 
 
 'O S3 
 
 o ^ 
 
 u 
 
 ° g- 
 
 so" 
 
 goo 00 
 
 j= .^ o c ea 
 
 r*00 ©> O H « r»s ^ i/l«0 
 00>0>0000000 
 
 eooooo OiO>oO'0'0>Oi 
 
 T « 
 
 H aao (oa« 000 
 
 1 
 s 
 
 > 
 
 t 
 
 i 
 ■| 
 
 a 
 
 a 
 IS 
 
 1 
 
 ■0 ui>o ^ 10 r* a 
 
 H M 
 
 tH lo^»>m'O^0 N mooo 
 MMOfOOOOiOOO 
 
 s 
 
 HHMMMOOH«W 
 
 i 
 
 10 looo 00 00 00 to n 
 
 ■0 
 
 NWdfONfOfC* m« 
 
 ^ 
 
 H r^OO ■*(» NOO 
 
 ^-O 00 lor-oo t^^H 
 
 V 
 
 (O f^ fn ■* 1*5 ^ 'I- WTO P- 
 
 '0 
 
 foo -o ■* mo 00 
 
 00W0P-1O0O.0NM 
 
 H H nmO «N00 *0H 
 
 0" 
 
 fO 
 
 
 fo 
 
 MHHHMMnMn^ 
 
 t^ « w r~« o H ct n 00 
 r^ O 00 00 (^ H 1 1000 r* 
 to 10 r*oo o ui « o 00 *o 
 
 I 
 
 < 
 
 O t^r«o»o*0'0'f>-a^ 3 
 
 HOUlO>n^HOO<HO « 
 
 ^ r-00 O » H moo t*) r. M C 
 
 rt <i> 
 
 o 
 
 m"^ 00 M ^O 00 O roO H O 
 
 . oOfOO-owr^t^tNoeoo o 
 
 ^ « OiO O^OWvifoO. *" 
 
 fe 'OHMr^O'l-NN'OiO -^ 
 
 r^ OOOOOOP-anOOOO ^ 
 
 M H H M H ^ 
 
 O 
 
 «00'0'*OOhOi^Oi o, 
 
 H O O 0> O OiOO r-00 V) Y^ 
 
 ^HineiOtH00r-o>^ g^ 
 
 NirtWiHr-w^'^t-O 3 
 
 «MCi(OtO*'*'*'*'* '-'• 
 
 00 00 00 Oi t* 
 
 « fOfO-O 
 
 
 
 n « "1 
 [*> 1*) (o ■* «^ 
 
 M O.ro « M 
 t^'O r-OO Ov 
 
 ■* ■* ^ * 'l- »o t-00 00 00 
 
 V C Qi 
 
 I 
 
 OS 
 
 9i 
 
 
 Si' 
 
 fc.'O o 
 w o o 
 
 p C B 
 
 P-00 Oi O H N ro ^ »n^O 
 0<0>0>0000000 
 000000 Oi&^^000> 
 
132 
 
 Some High School Statistics and Their Probable Meaning 
 
 -I 
 
 ^ I 
 
 •gi-S 'snsusD 
 JO ooi qDE3 o:^ sa^to i[ons jo apis 
 -^no snd^d xoo4^s 'qSiq go jaqtun^ 
 
 'snsuao jo ooi ip-ea o% sat^p qDns 
 ui siidnd looqos ^Sl^ jo ' jaquin^ 
 
 •gi-S 'snsuao 
 JO OOI H0B3 o^ sndtid poqDs nSii{ 
 u'Bn:^ jatljo AJBpuoaas jo jaquin.]q 
 
 'snsuao jo ooi qoBa o^ sjoai[Ds qSiq 
 ^B UI p3[pjua s{idTid: JO jaqum^ 
 
 •gi-S 'stisuao JO ooi ti3Ba o^ pa[pj 
 -ua sudnd ^JBpuoaas jo jaquinjvj 
 
 •sai^p qons jo apis^no 
 sioonos q3iq ui juauinojua' ib^.ox 
 
 ■s^.UBiiq'Bqui ajoui JO ooo'g jo sai^p 
 ui S|o6q3s qSjq ui juauqxo-ms I^^oj, 
 
 •spoqas JO sad/t^ \ie m patpjua 
 sjidnd AjBpuooas jo jaqiuuu l^ioj. 
 
 •saitjp qons jo apiffj,no 'gi-S 'uajp 
 -|iqb sTvsuao jo jaqumu ajBonxojddv 
 
 •sai^p qoTis uiqjiAi 'gi-S 'uajp 
 -\ii{D sris'uao JO Jaqumu a:;BunxoJddv 
 
 •sai^p qans jo apis^tvo xooqas 
 aqj o:^ siaqoBaij jo jaquinu aSBjaAy 
 
 ■sat:jp qans 
 JO apisino spoqos qSiq jb ' jaquinjsi 
 
 •siu-e^iq'equi ajoui jo ooo'g 
 JO sai^p m spoqos q3iq jo J3qum|ij 
 
 Pi 
 < 
 
 vi lo moo 0> Oi HI 1*1 tote ^ ba 
 
 1 1 
 
 m y 
 
 t O Oi "to « O ^O Oi o ^- *^ 
 
 «4 f*i ^ -t * 4 '♦^ ^ S S " 
 
 to •^^ g 
 
 , Q) H-l ij 
 
 ^^^^^^^^^^^^^^ ^ O et 
 
 vOTj-OlNOOfOCMMM 4J . ft 
 
 (*) rO « m W* (*) ^"O "■* jj B ra 
 
 I i ^ 
 
 J" 
 
 o>oo woiMOvomt-Qo a 2 f? 
 
 0to«r>.»O>0Hfn'* g ^ " 
 
 O r*j (*5 to to « •* ■* t •* ^ »rt E 
 
 •^ 1 ^ 
 
 U-) M M H O 0> 1«*0 N Oi c ^ .^ 
 
 "O . , CQ 
 
 ^^^io»oioiO»o v)»0 ** 2' B 
 
 ft ^ .9 
 
 C4 c« « m V) lo >ooo o-'O S e 
 
 (HMn«NMCI««CO o '*' w- 
 
 » .s .§ 
 
 t^OO O^fO-^MNP*© S O IS 
 
 o '^ (oo wwowr^c !*■ ,. > 
 
 to tj- ^ lO »o>o vo ^o >o o M 2 S 
 in ta ^ 
 
 Ov)roM>OroO>H>Om S3 J3 
 
 ooo^Oit*3»fl«Hoo>oo 2 rt 
 
 MMHHMMM " q 
 
 ° i B 
 
 ro O'* fOPi r-»o « <o M o M OJ 
 
 UI ■* r~ »o ^ O »o ttO (O M U ^ 
 
 O r-CO 0> t^OO w 10*0 ^ JJ *J o 
 
 OOOOOOOOOOOOOOOOOOOi 'o _ m'ft 
 
 oJ 4) O O 
 
 Z^ a o^ 
 
 o '5 ^*- 
 
 r* M'O i>-00 <00«aw G ta*** 
 
 ooomiifDO^iOMO m S ° 
 
 ft ^ bp-M 
 
 H m o ■^o HO i^oo 3 tfl -^ B 
 
 MMC»NW(*>fO(*l^l*) ft ™ '*-'aj 
 
 » I" 
 
 lO « M PO «t »00 t«.00 M ^ 2 ■" 
 
 5 -g -Oj: 
 
 s ^ *l 
 
 CO M o,^t ^ooooo oi o S -y 2 
 
 l-< U In O 
 
 (U a) 
 
 Ot^OOOO-MOiOiO 3 Q>rt 
 
 Hw«N«t-i«iH«M C +» +3,Q O 
 
 -^ °c£>- 
 
 (3 ««CP*' 
 
 S O p ., C 
 
 U <U u 
 
 OJ ^.'w h > 
 
 tn aJ_, <u Xx 
 
 : ■.::■.:•.:: : S -2 g5 « 
 
 :::::::::; b s « ^o o 
 
 3 2 fu o o 
 '^ u °? 
 
 <U «(U^ 
 
 J3 .js-a B c 
 
 "2 J 
 
 ; I i ; ; ; ; ; ; ; Is3-i33 
 
 t^OO Oi O M en (*J ■* WTO — O 
 
 ao-oooooooo j2, js 
 
 oooocooioaOiOiOiOi . o 
 
Some High School Statistics and Their Probable Meaning 133 
 
 MOOootn«oow*M»'i p to 
 
 O -C 
 
 to (O »*)<*) ^ «) m * ^ ■* »o H) 
 
 o 2 
 
 «aaooo r-'^fOM wo n *" 
 
 'T w ^■^ om O moo & • jr 
 
 >« M 
 
 « « ^-^o O r»co t*oo *-£-'? 
 
 P t- 
 , »:: V 
 
 *" j= 
 
 « «■ M M J M M H « H -S ■*- 
 
 lorOO*')«00»OMO'fO H O 
 
 fiOO OiO»Oi-(fO>nO.Oi ^ 
 
 (^(Om*^ ^ 4 *^ ^ -^ ^ 
 
 s- i 
 
 M v>o t* Oi moo wi M M ^ ,, 
 
 O. f*im « Oi wjt* M t* m g ^ 
 
 mo m m m V) v)>o <o O ^ *^ 
 
 <2 « 
 
 M000«wo0'00.<)r* N 
 
 «<o,oooooOnvi*o ^- 
 
 N. o O, ^ M n VI .VJOQ M 
 
 •-I c 
 
 It* B 
 
 > o 
 
 H > 
 
 0«m«o«r*wO m-O 
 00 « m *oo r- m Oi r* 
 
 •*«!** **mmmm 
 
 o>M M n r->o f*jmvO a 
 00 0«*om»0(*)tH M 
 r*00 mM^O-we^M^ 
 
 «0 tw mMOOoooooOoO 
 
 M 0. 000 «*) m r» ^ &*0 
 M r- oeo ■* to r- 
 CO •+ m ^ w ■* ^O moo 
 
 m t^oo 00 a & Oi O" a 
 
 ^-^tomfo-^M *^in 
 
 nnncicinncinn 
 
 0"0M «oomo *0 
 ^ w> 10 m m m« « r- r* 
 
 M M fOfOfOtOtOfOtOtO 
 
 I .1 
 
 so - 
 
 a o > 
 
 
 4; V 
 
 3 fert 
 
 >.s 
 
 >j: o 
 
 ll 
 
 N 
 
 O Q. 
 
 *> o 
 
 « 0) 
 
 yc 
 
 c <" 
 
 r-oo O- O « « to ^ mO 
 
 o>o>oooooooo 
 
 400000 0>0>00i0>9'0< 
 
 ■5"° 
 
 - OJ " x tJO 
 
 Si 1=0 •go 
 
 4J h ^ S 
 ggggcc 
 
 mmmo-Nt^^^Oiio c cfl 
 
 moo O m r-o r- r- o » g 3 
 
 fONtofO(OfO(0*m^ iS 5 
 
 I s 
 
 to m Tf o r^oo w 00 M -* ^ 
 
 m^«oOMOiMm«o uj . 
 
 ^ irt in ■* m * m ■* m m 6 ^ 
 
 OJ a> 
 
 Ot-MNWOOQOOOO ••-> o 
 
 ■* tooO O f* * fO fi Vi'O ^ fe 
 
 «««toC«««««M ^ *^ 
 
 at u 
 
 C^fOr^OiOfO-O^O* fa -^ 
 
 00 t>.00 O M •- fOO '-' O g g 
 
 to to ro ■* ^ tT -+ ^j- m * ''^ ^ 
 
 " ^ 
 
 60 ** 
 mw-^fOt^Cto-^wm fl nH 
 (O iH o o m mO c 1^0 :« 3 
 "O 3 
 
 £ 00" 
 
 0. o 
 
 *-» 
 
 00tOM(OOtOMtO«0 3 o 
 
 O r-00 t* I". 00 o «oo 5 M 
 
 .......... u a 
 
 eiMMMCtMi-innci o g 
 
 OWtoiifOPtiiTf r^so > ti 
 
 0< «o00 to O O ©oO tOOO ^ ™ 
 
 , too -O r-00 00 O- O « " . 3J 
 
 r-t ..-.------co ?^ 
 
 § """ I s 
 
 H-l _ 'g 
 
 m inMrOt-0>mt-«0>* SS Qi 
 
 r#i * to O * too too * t ,5 > 
 
 gf « * O too O O fO H "I « 5 
 
 U wi mo o m mo o t* r~ JJ "^ 
 
 i "^ -S 
 
 m '^or«omottoo>M *J 
 
 O O m M O t too p» t o M 
 
 (^ «m«o>Oi«ttor~o m ,5 
 
 1^ oooooo t to t «o o o jg .ri 
 
 M lommmmmmttm o 5 
 
 
 
 
 McoO>-iowtmo 
 H too r~ tH 
 to 00 M too CO 
 
 wo 
 to CO to to 
 
 to 00 m « CO 
 
 (O to to 1 1 1 
 
 to t w 
 
 to tn'O a oi 
 
 w 
 
 « M « 
 
 M « rt n n N 
 
 mm 
 1 1 1 t 
 
 M 0000 000 
 
 m 1 1 1 1 1 
 
 
 
 c-r-oo 
 
 o-ooooo. 
 
 "a 
 
 
 S c 
 
 °o»c 
 
 E 
 
 g go o 
 
 2 g o o 
 
 
 r^oo o o w « fo t loo 
 0>0>0.0000000 
 
 000000 OO'OiO'O'OiOi 
 
134 Some High School Statistics and Their Probable Meaning 
 
 X 
 
 1 
 
 a 
 
 s 
 
 < 
 
 a 
 
 tt a 
 
 •gi-S 'snsasa 
 JO ooi H3BS oi saniD qons }0 apis 
 -^no sjidncJ looqos xi3;i( }0 jaqmnfj 
 
 
 nntfit^nmn^^^ 
 
 ■8I-S 
 'snsuaa jo ooi qoea oj sax^io nons 
 u; sndnd looqDs hSih jo jsquin^ 
 
 M »/l M « O 00 t^oo o w 
 
 V) V) lo to* lo vt "no « 
 
 •gi-S 'susaao 
 JO OOI n3-ea o^ sildnd jooqos qaiq 
 UBq!j J3q:jo XjBpuooas jo jaqiun^ 
 
 
 
 ■8'-S 
 'snsuaD JO ooi qOEa o^ spoqos q3lq 
 HE ui pajiojua sjidnd jo jaquinfj 
 
 M 00 t^ »0'0 o »o o » 
 M (ON <o ■<1- ^ »o« r- M 
 
 ■*'<t'*'*Tl'-«l--*'*'<l-lO 
 
 •gi-S 'snsnao jo ooi qoBa o^ psuoj 
 -ua sjidnd AjBpuoaas jo jaquiiiN 
 
 «^ O O-OO « vi>0 i« o ■* 
 tot^to>ooo t^oooo M \n 
 
 ^^^^^Tj-^rfinto 
 
 •sal^p qons JO apis^no 
 siooqos qSiq ill lusuinojaa lEiox 
 
 « M « r-oo lo (*) lo « « 
 ot o N V) a M t^oo « r- 
 O. M M "to C rooo r-00 
 
 lo r- *- »>• »^*C 00 00 0> O 
 
 ■s^nEjiqBqui ajotujo ooo'g jo sai^p 
 UI siooqos qSiq ui ^U3iu[i0jud l^'^ox 
 
 fl t^ ^ * * fO >OQC lOOO 
 00 (f> 0> (^00 M "O O ifOO 
 
 0,00'-iiHW««nT<f 
 
 •spoqos JO sadX^ jiE UI paj^ojua 
 Slidnd jSjEpuooas jo jaqumu ie^ox 
 
 OCO <*3M &\O00 fOO.« 
 m o o> O. O t^ CO O M 
 
 0000>OMwrotO »o« 
 
 •S3HI0 qons jo apisino 'gi-S 'najp 
 -jiqb snsuao jo jaquinu a^Eunxojcldv 
 
 MOO Oiro o a*o « M o 
 ^.Tj-ao o CO ^*oo. 
 
 * o * « u^ cr> « r^oo M 
 
 •B3HP qons uiq^!« 'gi-S 'oajp 
 -[iqo snsuaa jo jaqiunu a^jBunxoaddy 
 
 iH00»nio0*O M*« N 
 00 M o 0>n»oM^f*>M 
 O looo » ^ « r- Ol ^ M 
 
 00*0 oic-ooo t-o *n«^ 
 
 OOOOOOQiOiO H 1-1 W W 
 
 MMMMMC»W««M 
 
 'sai^io qons jo apis^^no poqos 
 aq» o% siaqoBai jo jaqumu aSRiaAy 
 
 t* r- r^ r-00 00 "O t^ «^00 
 
 ■sapup qons 
 JO apis^no spoqDs q3iq j'o jaquin^ 
 
 t^ ^00 -^oo »o M r- w Oi 
 \n w lo-o -o xo fc f*) * m 
 
 •s^UB^lqEqui ajoui jo ooo'g 
 JO saijp ui sfooqos' q3iq JO jaqumj*! 
 
 OOOOOOOHMrOWMWl 
 M M M tf) f) n f*i t*i *'i f*> 
 
 >- 
 
 
 »-oo' e- d w M ro ■♦ mo 
 o^caooooooo 
 000000 &»o>o.o.»o. 
 
 6 S 
 
 a 'P ■^ 
 
 J3 
 
 S 
 
 E 
 
 O 
 
 > 
 
 
 r e 
 
 8 ■« •=! 
 
 M fll pig 
 
 - .C 'e 0. 
 
 as c 
 .3 -gfe 
 8 ^^ 
 
 _e ■*? 
 
 ^"O o 
 
 i s_c 
 
 H oH 
 
 
Some High School Statistics and Their Probable Meaning 135 
 
 « n« tfit*itt rof^fO<*i 
 
 « (O»O»*>fOP0'*'**^ 
 
 X 
 
 a g 
 
 •0 
 
 lOOOCO 
 
 00 W fO Wl 
 
 " 
 
 n n n 
 
 ** 
 
 CI fJfO « fO 
 
 W lO'O'O 
 vOO 10 
 
 
 
 H r^-COO 
 
 oao. « 
 
 ■H M M M M 
 
 M 
 
 
 r»00 Oi O '-' « *0 * »0>0 
 00>0>0000000 
 
 ■00000 o>oio>ao>ao 
 
 
 ■*'O00 rO'** ■- 000 f 
 
 lO'O r« (*) M M f*) c*) moo 
 
 X 
 V7J 
 
 ei M M fO'^r*)(*)(Omrt 
 
 t*i fO-O 00 * r^ lO « H^ u-< 
 0> M r-io tn r«QO « 
 
 
 W i*JfO'')'*3<^i*J'^'t^ 
 
 a 
 
 twor-ioaw^&r-o. 
 0'0'^«fO<*)' 
 
 o E 
 
 « WOO n ^Oicor^OiMi 
 w fo ■* M o M o *« a 
 M m CT o>^ r. »»■ «f w 00 
 
 M w Oi-^i^o O W00>' 
 
 ^ 10 r. »o a u^ r- 0"0 T 
 
 00 & ^00 t^ Oi (O w fO »■ 
 
 * * * f^ ■* « 'to O u 
 
 t^u^r>OioOnOM(ir^ :7i 
 >^00 a0000000O>O>OM ^ 
 
 HHti-ii-iHi-iMi-rC>in K^ 
 
 S s 
 
 ■a > 
 eS 
 it a 
 
 •= 2 
 
 
 8 .aS 
 
 
 9. 
 
 S I" .,3 
 
 5 g .£.2 
 
 c u^-o S >• 
 
 ■ M ^ S Ji 
 OJ ^ u ^^ c* <u 
 
 •"00 '^ Ui o> » 
 
 
 
 « 
 
 
 
 000 oooe 
 
 
 -t 
 
 ■* •* ^ ■* ^ 10 10 tno 
 
 m 
 
 ifl M ^>ooo 'too -^oo 
 
 ^ 10 ^-0 lOO liTO -o 
 
 »o 
 
 
 M « « ^0 
 
 1-. N « PO 
 
 n 
 
 n « n N M 
 
 W fl **i fj J^ 
 
 0> r-oo 
 
 mooo N 
 
 10 00 M 
 
 r<}000 00 
 
 10 
 
 
 WM W (^(OfOOMfOn- 
 
 t^ « POO 0> (OOO V)00 t- 
 00 *vO '* «o * r* « 
 
 
 r-00 a« 
 
 2 
 
 »oO O « &W10 r* 
 0000 f^ t O>00 *00 V) M 
 owwoor-Har- (oo 
 
 wiOO iflvO 
 
 t*i-.oo o>o. 
 
 6 - 
 
 
 o o 
 
 X 
 
 n 
 
 < 
 
 i> I SI 
 
 r. tN.\0 O »o O O to fOOO r^ 3 <u « S 
 
 Q r» <*) M-o O f^ooo O M g o ■••^ 
 
 CO N ■* ■* i/i r-00' aH«Tt ?J "S .flC 
 
 I "s I ^g 
 
 S M 000 uli/-. r*0 roOt^ O - JS C 
 
 M OiOi^OOO^OOO M .5 OO 
 
 " « <*)00 O O ifl-O 4 Tfoo J3 T) r- rt 
 
 111 ca 5 o. 
 
 o 2i ia 
 
 00'*M'*OiO>0>000« , 4J gfl. 
 
 ma'-''-«oo«'0'0»n ^ "O ^S 
 
 00 00 «00 Oi roO CO w r- •« i^ 
 
 00>OW>/100 0C« irtO 3 S Q.'rt 
 
 C -3 .Sc 
 
 - - - - rt o »» 
 
 OOOiOMWio^iOMOO p •§ *^ 
 
 WMt*l«»0<OfO(OrOrO § *" BO. 
 
 fi bo w 
 
 oOOOMrot-NOOiO O "^ '^"ti 
 
 OOOiOiO'-.MPO'* ■*« ti i* 5 
 
 rf O O rO^Tt^V)»nto 
 
 ■n * 
 
 r-oo o H « (O * w)0 
 »»oooooooo 
 000000 oaoioaQiOi 
 
136 Some High School Statistics and Their Probable Meaning, 
 
 X o 
 
 A o 
 
 < 
 
 •gi-S 'snsuaD 
 p 001 qoB3 o^ sapp nons jo apis 
 
 'sTisu^o JO 001 no-ea 01, saj^p noixs 
 ui s^idnd xooqos ^3l^ 30 ' jsqtunjtj 
 
 r*)e«5**j»0*^ir*^»« 
 
 n^^t*!-*^"**^* 
 
 •gi— S 'snsn33 
 JO 001 HOBS 05. s^idnd tooqos q3;ii 
 u-eq) jamo i^jBpuoogs jo jsquirnij 
 
 'snsuaD 30 001 qoBa oj spo^os qSjq 
 j|B UI P9110JU3 s|tdnd jo Jaqtimjij 
 
 •gi-S 'snsuaD jo 001 qoca o:^ pa^oj 
 -ua s|Tdud AjepuoDas jo jaqam|j 
 
 •saji-p qons jo apis^no 
 siooqDs qSiq in' ^uaui^ojua* l^^oj. 
 
 •sju'B^iq'Bqui aaoni jo ooo'g jo sapp 
 ui s^o'oqDS qSiq uj ^juauupjua \b^ox 
 
 •sioouos 30 sadXi we m pa^ojua 
 sjidnd AJEpuooas jo jaquinu \'e%ox 
 
 •sai:^p qons jo apisino 'gi-S *uajp 
 -jiqb "snsuaD 30 Jaqumu aiBiuixoiddy 
 
 ■sai;p qons uiqjiM 'gi-S 'uajp 
 -\tv{p sns'uao jo jaqumu a^Bunxoaddy 
 
 ■sai^p ^Dns 30 apis^no jooqDs 
 aq:} 0% siaqD^a) 30 jaqumu aSeaaAy 
 
 ■sajip qons 
 JO apisjno siooqDs qSjq j'o'jaquin^ 
 
 ■s^UB^iq-equi ajoui jo ooo'g 
 JO sai:;p ui s'poqDs q3iq Jo jaqunijij 
 
 < 
 
 «*Jt*l(*)rO*^'*^'** 
 
 * ^ * •* »o 10 ^ «n m m "jj 
 
 MOOOOOO W N r^« t^t^ 
 
 CO * Vl r'i'O tn O t^ "OOO 
 ^0 OiMOO IJir*W00»O « 
 
 \n t^ t^ O H OiO O hO 
 
 M ■* (*) Ol t Ol (*1 *C0 M 
 
 ■* O ■* « « « '*3*0 t^ "^ 
 
 M « 'tee »o 00 10 o Oi »o 
 
 O- lOOO ^00 10 M ■* fO t^' 
 t^ 1000 H >o o •-< t^ « w 
 
 00 O O' ^ O»o 00 r^oo o 
 o r«o i-avo lo o o >o o 
 
 O 00 )H »n>0 "* o « o o 
 
 00 00 ^O 00 M \o t- o o> 
 Oi O « ro w wi m"r» t«. o 
 
 NMMMMHnnNM 
 
 H M n H t»00 00 « M w 
 
 10 10 >o*0 >0 >0 O r- r* r« 
 
 a" S 
 
 - -s 
 
 ".a 
 
 u u 
 
 ■» a 
 
 e % 
 
 •O B 
 
 s 
 
 el's 
 2 ft 
 
 « •£ 
 
 E 
 
 C M o 
 
 <U0O 1^ 
 « „ « 
 
 O— p 
 
 .Sob 
 
 ■"B 
 lAS B 
 
 CQ o O 
 
 £ ° £ 
 
 r. » Oi 
 
 t*00 0> o w w »o^vno 
 o<o>o>o 000000 
 
 000000 0>0>0>0>0>0>0t 
 
Some High School Statistics and Their Probable Meaning- >3j. 
 
 ti CI e» « <^»o(0»0"t^ 
 
 to m t» v)sO <o >0 ^ to o 
 
 i 
 
 s 
 
 ft 
 
 A 
 
 bo 
 
 J* 
 
 m 
 
 •g 
 
 'C 
 
 rtl 
 
 
 
 
 
 
 
 » 
 
 ^ 
 
 3 
 
 3 
 
 B 
 
 a 
 
 t 
 
 s 
 
 
 
 
 
 
 •a 
 
 
 «! 
 
 > 
 
 u 
 
 H 
 
 **i*«i*o*OfOO**'*'* 
 
 u 
 
 a 
 
 p. 
 
 c« ^00 00 00 o> r<- ^ ooo u 
 
 00 t* »■* MOO wiOOO ^ J- 
 
 00 «o e< (-00 r« r^ t^o m ^ 
 
 « n *>o*oo o. M fo fo o 
 
 MMMMMMMCtttn ^ 
 
 r«oo 0O>r«.e«>o>o«a0 S 
 
 ■/) n t^^ fo o> M M n o> fi 
 
 * 1^ M « 0« ^ O O 00 "O 
 
 -»*------- oo 
 
 aOO'M&O'OMMMM H 
 
 M M M M M M I 
 
 ^^^_^.^.^_____^_^.^ »^ 
 
 • O » Oi M o* &>0 O « 00 2 
 
 <* ncoOi^oOiW r*oo 5 
 
 ^ oow»owfoo«*noo S 
 
 3 V> !>■ O M « « lOOO Ul M S 
 
 o ° 
 
 5 e«) ** Oi lO M Oi Oi"© 00 O 
 
 OMrcmmo>MMO.r>i O 
 
 Oe«^aor>^mr<>v)0 m 
 
 e 
 
 & *^ t & O M n WTO p» 
 M M M r^io'fi/ii/iioto 
 t/)i/)min>ot/im>nv)v) 
 
 S-S 
 
 y 5 
 CO c tfl 
 lU-S CO 
 
 SS^ 
 
 ■^00 U 
 
 00>rOMm&MfO'Ot<> «J.B 
 
 >0>0«Or-fnO«»0*M M '^•»« 
 
 OOMO^fOW-O^uiO 'SO.n 
 
 ---------- Hi^a S 
 
 *o * fc f*i ifloo M \o *oo 3,^3 
 ^ lo »oo m »/i r- t^oo Oi Pt P^**^ 
 
 MMMMMMMMMM ^^ 
 
 C3 « u 
 
 88" 
 
 «««rO*C««C«« 
 
 fO 
 
 MNNnnMnMCt 
 
 " 
 
 O « n O **00 o lo M -o 
 
 MMNlOUT^r^M-^M 
 
 
 »o« vo o « H rv M 
 
 M««M«fO'OfOW'*) 
 
 tn m ^ M t^ m * looo oo 
 
 l^-OOO t^O M M « t*« 
 
 f^c<« w (*)wo*^<*i»o 
 
 fo t* •♦o t'-'o a o> t* 
 
 
 m t^ O <4- M 00 00 Pt ■♦ « 
 yf^Vit^O O O M fo-* 
 
 «NP(Mc*jrornrOP0'O 
 
 oO-^fOO M in^M W)0» 
 O M n loO r- r-oc O* 
 
 i^rDfOOfOfOr^MfO* 
 
 r*) r- *00 ^ w t* •*« m 
 wo « TfCO. «00 ■*t^ 
 
 « « t^oO o> O- M « to to 
 
 i g 
 
 § I 
 
 S £ 
 
 ^ i 
 
 ■SSi 
 
 si 
 ■sa 
 
 M +3 
 
 «o *>o foroviwMino k 
 »^ Oi r-O (*> « « W3 O M " 
 
 >0 roOO OMr>000«M 
 
 5 
 
 .2fi 
 
 J3 
 
 St 
 
 ss 
 
 S O." JO) g 
 E cS m*'t3 
 C *.— cS 
 
 rtoo^-d^g'g 
 
 fO« r» lo ^ O * f^ioo 
 o. wo N t^O ■*«-o 
 O»n«00 « r.»oioN00 
 
 "♦O t^ o o 
 
 «0 lO "O-O 
 
 *00 «(O^W'*'*t*^ 
 
 CO &r-N o>*OfO&«^>o 
 O WTO t* O-oo O »n >« 
 
 00 ** t^-O o -o 
 
 MOO O.'* 
 
 <«00 00 
 t^ t». r» r- 
 
 « woo r.>ooo 
 HON r^OvO 
 0.**0» rOM 
 
 fo M r- fo 
 O r~»^ 
 
 K) roOO t 00 
 
 * o> o o aoo 
 
 M O'OOO 
 O i^O & 
 
 « lOmO t*00 
 
 O.0 w 
 
 « M « « N « 
 
 W ro fO fC 
 
 fO » fO t* H t~.00 f- ■* M 
 
 00 r^» O-N O « ■*<5 r^ 
 «««C»rotC«fOfOrO 
 
 ^ O O i^oO 00 
 
 O O.K)-* 
 
 1.S 
 
 5 
 
 2 s ri 
 
 ■S g^ 
 
 S"SS 
 g 1 
 
 (U ■ ki A ¥! ilS 
 
 J5 S-^"" B B 
 
 »*oo o. o M w <*) * in>o 
 0,0.010000000 
 000000 ^O'OO'Q'OO 
 
 r«oo Oi O "^ M fO * »'i*0 
 
 aooooooooo 
 
 OOOOOO 0>&0'&0>OiOi 
 
138 Some High School Statistics and Their Probable Meaning 
 
 > 
 
 X 
 
 < 
 
 •gi-S 'snsoso 
 JO 001 HDB3 oi sat^p HDns jo apis 
 -uno siidnd jooiios ii3m Jo jsqumji 
 
 •gi-S 
 'snsu33 JO 001 tpia o\ sai^p \\ons 
 ut siidnd [ooiios qSiti jo jaquini,! 
 
 •gi-S 'snsnao 
 JO 001 qoBa oj siidnd ]ooqDs H3iq 
 UBiii jaii^o XjBpuoDas jo jaquin^ 
 
 •8»-S 
 •snsaaa jo 001 i^OEa 05 siooi[OS uSiii 
 IJB m panojua sndnd jo jaqiixn^ 
 
 <oiomro***«t*^ 
 
 J3 
 
 t/)i0vOsO>O'O>O<O (oC« 
 
 o 
 
 a 
 
 I 
 
 io**'t****^>rt 
 
 
 B 
 
 O 
 
 •gi-S 'snsuao jo ooi novo o% pauoj 
 -U3 Siidnd Xjcpao33s jo jaqum^ 
 
 
 •siUBijtq'Bxim 9JOUIJO ooo'g p saiip 
 
 'sxooqos JO sadX^ ^b ui pa^ojua 
 sjidnd AjBpuoDas jo jgqumu I'e:^oj^ 
 
 ^mtntov]viv>io mO 
 
 .; a 
 
 ■S3i;p qons JO spxs^no 'gi-S 'najp 
 -jiqo snsuao jo jaquinu a^-euipcojddv 
 
 -\mo snsudD JO jaqumu sq.BUiixojadv 
 
 ■sat^iD qotis JO apis^no [ooqos 
 aqi o:^ siaqoBSi, jo jaquinu aSBJiaAy 
 
 JO apjs5.n0 spoqas q3pl jb'jaquin^ 
 
 's^UBi-iqBqui ajoui jo ooo'g 
 JO sai^p in sfooqos" q3iq jo jaquin^ 
 
 
 lOOOOCO^f^OrOt^O 93 2 WJS 
 ^ 1000 »0 trt -^ r- l*)0 * J2 "S iJ 
 
 t^OO vOM'Ot~C~0««0 C t* 2^ 
 
 coo>o««tH«(o«« fe ^ •?. e 
 
 . O _^^ 
 
 00 iH mOCCO 000 t^vO P M "S^ 
 lO-O NO « >0 t» r^ r»00 00 M ^ 6 lU 
 
 ": S T% 
 
 00 M *0 O OitnO Oto tn 'S S C 
 
 oio-o t^«co Mow« P " tr„ 
 c > "og 
 
 O « (O >o >o ^ m-o 000 *> o t^ ? 
 
 ' 04*^ *.s 
 
 « t^oo O o GOO 10 mr* nOO Si "2 "S 
 OiwHOCOPOWoor-r* o -iS St3 
 t0<*)>nH0000O«^'0 ^ " P 
 
 « >o 4 I- M a ^ t^ o'oo j2 -S'S .S- o 
 
 (*)t0»'l»0^«l0»'l00 ^i._j .CO. 
 
 00(ONOOO0^O«)T^ g^* ^jiM 
 
 MOO 00 * o M r-00 o « M '-' y o 
 
 ^^ tOroO «C0 wo O ^ >^Trt " . 
 
 .......... PiIh'^ .*» 
 
 M f. O »0 ^O M-^OO SPiO 4JC 
 
 ooaooo-HNN ftp-rt oiu 
 
 M MHMMMMM ^ 'CO 
 
 -SSs *« ft 
 
 t^vo m>o t*oo Oi HI w to S^ 2 M 
 S-*^**- *"e 
 
 go" *^-S 
 « "?43 a> SJ 
 
 N Ml i^ « nt<i-^ fcoo o O « S ™ d 
 
 OOON«N«WWfO . 0'*H *» 5 
 MfOMfOPOtOfrjtOfOrO Kl- >■ 
 
 S»o a; u <u 
 MtofO«MWiH«POfO 5 ai ed 
 
 bC^"*"? 
 
 ::::::::;: •S«oo„>. 
 
 ::;::::;:: S Sj-g °^-g 
 :::;:::::: bllgoo 
 ::::;::::: -S-S^aa 
 
 :::::::::: x^x^x^ 
 
 I * * i I ' I I * I w ^^ 4) fO ♦ 
 
 r^co a o M* « ro ^ WTO *> " 
 
 aattooooooo e « 
 000000 o> o> o> o> o a o> ^ a 
 
 HMMHMftHHMM HI ^ 
 
Some High School Statistics and Their Probable Meaning 139 
 
 
 
 » ei (1 « 
 
 
 
 «00 
 
 000 
 
 M oooo « iO« 
 n » t^ r-OO PI 
 
 n n 
 
 m fOM « 
 
 m (*) ci t 
 
 00 Oiui f * « 
 
 00 OOO 
 
 POM * 
 O>««00 
 
 M 
 
 M 
 
 
 00 Oi ^ rnoo ^O M oi tn 
 r-r-OMiHe*fnt^»>-0 
 
 M M 
 
 « M M « 
 
 « M M (*) 
 
 ss 
 
 M 
 
 N tOlOOO 
 
 « « 
 
 (0(OM«OfOromfO 
 
 ■a 
 a 
 
 o 
 E 
 
 I 
 
 a 
 
 DO M 
 
 w ^ i^ O 00 « r*00 c» M 4) ♦* 
 
 00 n Oi M »«. »*) «n00 *0 « jj ,-.1* 
 
 HMMMHM.HM «M o 
 - ^ ^^ 
 
 00 »r>.-0 fO*r»'*'0 « 5 M ^'3 
 
 f*j M « aoo moo irt o M ^ I- c^ 
 
 t* r»00 r«-oo OOOimW*^ m ^ *«¥ 
 
 X o 
 
 00 r-O M mo Om M M 
 N o>oe » M r* M M 
 m ■*<) 00 •♦0 M -O 
 
 r. m 0> O aoo M ■* moo 
 
 n««INWC*(Of0m(O 
 
 r*i »rt Ml &0 M t* M 
 
 
 0000000 M 
 
 m ^ •fj-mooo 
 
 r»000000 
 
 »- m m mo m w ^ 
 m M CO 00 ^ a a * ro 
 i-'^mr^M 00 o>o M 
 
 O- « m w »^x n 00 
 m r~ r-o r- m 
 
 m * fO 
 
 « ro « « M M « 
 
 (i « N 
 
 « N W N W M « 
 
 « M MOO moo « « 
 
 f^OO 0> (^ N ■* t>.00 M (*) 
 MMMMC1CIC«nrO(*) 
 
 r^M 
 
 M M M 
 
 -*0 m OM wjo 
 M M >-• M n n M 
 
 . . . 
 
 
 
 1 
 
 ■i 
 >< 
 
 1 
 
 >t 
 X 
 
 ■a 
 
 tai 
 1 
 
 
 
 
 
 
 1 
 
 moo **0>mO«0Ni 
 * » m« ei (^ m m 
 
 « n fO«**mmmm 
 
 ^ 
 
 m * »o (O *oo M irt 
 r- mo m mo m 
 
 ? 
 
 
 
 
 1 
 
 J 
 s 
 
 00" 
 
 00 
 
 5 
 
 
 
 ON 
 
 n N 
 
 O-ci M po r-O 
 tn m *o 00 t* » 
 
 
 
 
 
 
 
 0. fom a Om 
 « 000 000 
 
 mOoo m 
 
 M M M 
 
 C< M CI 
 
 e« C4 M n 
 
 *0 « moo ameioo « 
 M m 000 m r« 
 moo 00 MO 00 mo * 
 
 000000 
 
 M « 
 
 w ■«f*m 
 
 
 
 
 
 
 
 > 
 
 X! 
 
 a 
 
 n 
 
 •< 
 H 
 
 Mr-(*)^fOMm^(*)M > 
 000 m ■* * t-oo o 000 **■ 
 moior"*«^fO*m 
 00 
 
 « « * (*) * ^ mo 00 M „ u « 
 I a O > 
 
 3 a; ^3 
 
 llii 
 
 o ^ g.| 
 O - « — 
 
 ft a 
 
 •c -a .So 
 
 T3 O 
 
 *m*(nr^M«OM MO 
 00 mO MO moo « * 
 mO ■*0 Or^r-O 
 
 t» 
 
 0.0>n « M -^o r-o. 
 
 MM«N(H«««« 
 
 ^ M "lO »*i r» m 
 m w r») (*)r*^moo moo 
 W Oi t«-0 ^ TO m r^ c* m 
 
 O(0« r-r-ofoon 
 'too ^ r- mo o> M M m 
 
 o-oo »oo>o>o>o 
 
 M M M 
 
 O"* m -*oo 
 
 t r-O c- 0>0 t^ 
 * « fOO PO * 
 
 MOOO 
 m wo 
 
 M OM 
 
 to a^ r~ Tt M 
 OM o,o>o 
 
 mt^M 
 
 M M f*) 
 
 m 
 
 ON N n M « 
 
 « r^'* 
 
 « 
 
 M W W N « « 
 
 M N n 
 
 
 
 
 M 
 
 por^m'* f-mm 
 r- r- M fo M --to 00 
 
 MMCIMC<««C<M 
 
 a «5 
 
 •0° 
 
 0.0) 
 
 & d 
 
 a •= .„ 
 
 S 1 gS. 
 
 •a J- ? « 
 
 ° c 
 
 ^° ! li 
 
 - a> tn"5 
 
 .0 
 
 E 
 
 3 
 
 C ^ « V 
 
 *■ °0O «•" 
 
 « M 4) " M 
 
 r*oo o O M M po ■♦ mo 
 o>oo>ooooooo 
 000000 oooo>ooo 
 
 t^oo o> o M w po ■* mo 
 0>OiO>OOOOQOO 
 000000 »0>00>00>0i 
 
I40 
 
 Some High School Statistics and Their Probable Meaning 
 
 X 
 X! 
 
 JO ooi U0B3 o^ S3T^X3 q;ons jo apis 
 
 susuao }0 OOI q3C3 oj s3i:ip qons 
 ui s;idnd looiios n^iit j6 ' J3quinjij 
 
 ■gi— S 'snsuao 
 JO OOI i^o-BS o^ s^idTid joonos ^Sl^ 
 UBm jamo AjBpuoo9s JO jaqiimjij 
 
 •gi-S 
 
 'snsuao jo ooi qa^a o; siooijas qSiq 
 l[v nt pa^pjua sjtdnd jo jaqxiin^ 
 
 ■gi-S 'snsuao jo ooi qo-ea o^ pa^joj 
 -ua s^idnd Aj-epuooas jo jaquin^ 
 
 •sai^p qons jo apis^no 
 siooqos qSiq uj ^uauupjua* ibjoj, 
 
 •s^UB^TqBqui ajouijo ooo'g jo sai^ia 
 UJ siobqos qSiq ui ^uatU]iojua jWiox 
 
 'siooqas jo sadX^ \\b ui paj^ojua 
 sxjdnd XJBpuooas jo aaquinu ib^ox 
 
 "sai^p qons jo apis^no 'gi-S 'uajp 
 -\ii\3 snsuao jo jaquinu ai,EaiixoJddv 
 
 ■sai^p qons xnq^iM 'gi-S 'uajp 
 -Ijqo snsuao jo jaquinu a^Bunxojddy 
 
 'saiip qons jo apis^no poqos 
 aqi o^ siaqoBSi jo jaquinu aS-ejaAy 
 
 "sai^p qons 
 JO apis^no siooqos q3jq jb "jaqumj^j 
 
 "s^uB^tq^qui ajoui jo ooo'g 
 JO saj^p UI s'looqos qSjq jo jaquinj>j 
 
 C4 
 < 
 
 
 ^ ^ t>. 10*0 O I 
 
 rOPO^^^t't'iOViiO 
 
 CO'4-OMO.MiHn^rO 
 ^>o so * e^ o ^-O m 0> 
 
 00*0 (^O (O»noo ^ in n 
 *OOt*J»«MOO>OW 
 >O00 0> t^ COOO O M M O 
 
 «*)\0 o M w (^ t~o m o 
 00»O^r^M-l^&»o0 O 
 H t^*O00 H >/^00vOC0 00 
 
 toMOiiootniHO'-i 
 «0*0 r^OOOoo r-OO O 
 f) (*) r*) ^ O O <*i-<*) ^ ^ 
 
 r^ ^ O O>oo r- ^ r» CT' 't 
 >OCm-ihmc«C0C000O 
 m O- M t» t*5 0"0 N O M 
 
 
 ^mr-N « o^o>o t^o 
 
 r«00 OO M « rO'^toO 
 OO'O'OOOOOOO 
 CCXX 0i&00^0>0 
 
 S 
 
 s * 
 
 6 ■; 
 
 ctN(oto*ofo**** .: 
 
 Oi ^o o o o o ■* N * 
 
 r- <o VI o 'tf-'O wi r*oo *- 
 
 00 r:>:. 
 ,'E 
 
 :«! 
 
 
 "SOU 
 
 -•a.S 
 
 •° sii 
 
 2j IS S 
 
 e 
 
 a 
 
 
 Ji 
 
 s 
 
 ts 
 
 g 
 
 
 
 
 
 
 G 
 
 
 UI 
 
 1 
 
 E 
 
 .9 
 
 •d 
 
 ^ 
 
 T3 
 
 c 
 
 V 
 
 4) 
 
 
 
 
 
 
 « 
 
 r- 
 
 n 
 
 u 
 
 ^ 
 
 a 
 
 i e 
 
 •ss 
 
 S-9a) SB 
 
 .a* 
 
 ;s 
 
 3 2 
 
 *C CS 
 
 j: 'Btj ^. §■ 
 " S S .9 a. 
 
 ea fr* OT p 
 
 " '.a 13 o 
 
 3 c « 
 
 0) Oj- 
 
 ^t?2 
 
 
 .as 
 
 ■a -a 
 -§ 
 
 .Kg 
 
 •" 01 ° « S £ 
 ■" u ° Q a, P^ 
 
 SSb*g£ 
 
 y 0) § B'S o 
 .s u a o a o 
 
 0) aj ^ *^ 
 
 
Some High School Statistics and Their Probable Meaning 141 
 
 »otot^'*'*^*^i«»n 
 
 ^ \r, i/)«o >o «o « r- r 
 
 X 
 
 .5? 
 
 J3 
 
 •*s<*)fO^'*^^»n*o»o 
 
 *t ■* ■* lo »o m \n'0 « 1 
 
 ^^•Hooaooo%o-M noo 
 
 I 
 
 -° I I 
 
 O 9 r-oo & »*) »o •♦ Oi > 
 r-uir-w'0»o'0'0»oOi "^ 
 
 ---------- 00 
 
 ^ roaWMOOtOWOtoO 
 
 7*1 fo r* ■* e»o m •*■ Tt O M 
 
 ^ « M O. 0,00 lO M ui O f^ 
 
 QQ ^o in t^ r-eo o o « f^ 
 
 < MMMMHMM««« 
 
 « 
 
 fiQ Q< loco H ro f^co 10 O r*> 
 
 M MONOOO^OW"-. 
 
 1*1 ^ 000 o r- ■* w O "I'O 
 
 00 00 O>r>ooo0oo r^ r^^O 
 
 00 o> t^ o> tn o o>>o M n 
 M ^ o I- M so « r->o ^ 
 
 0> &00 Oi Qi O r>00 00 00 
 
 O 10 (*) f* fj- O f^O I'l I'l 
 
 OiO O fO'O'Of^'*)*^''! 
 
 
 jj3 
 
 ^9 
 
 •« 4> 
 
 
 o o >» 
 
 »-00 O- O w « fO ^ >00 
 
 aaaooooooo 
 000000 0901&000 
 
 r-O rooO i^O-O M MOO 
 »H t*>o to »*) r- ei iM V, o> 
 
 1 
 •0 
 
 .5 
 
 C 
 
 ^tow »oO M'O'OOCOO 
 
 00 
 
 nfO^flfifOfOf^fOO 
 
 0, 
 
 e 
 g 
 
 1 
 a 
 
 >> 
 
 •»^ 
 ■1 
 
 K 
 
 a 
 
 1 
 
 
 
 (0 
 
 1 
 
 •S 
 
 i 
 
 ^ «*« 00 M w) ©• ^ r* 
 
 IHHtMMMOMOMO 
 
 MCior-wr-oOfOW) 
 w: f) * * >o*o 00 r» 
 
 1 
 
 rfitfifytfirfirf^tfir^yrf^C) 
 
 1 
 
 too H»0(*)0 O.t*0 
 W « HI 00 ^ '- »OQ0 »fl 
 
 
 
 IS.O .0 ^00 00 * t* fO 
 «00 -*N-*Wt-.M&N 
 
 E 
 
 
 O 
 O 
 
 M 
 
 en 
 
 ♦« « 1- M M roOW 
 
 « « mfO'0<*)<*)'^«'0 
 
 00'*-O>«'*«'*JOO>r- 
 Of^wooto^r^ r-oo 
 
 H fO N 0"0 PO fO t>. W M 
 
 ^^liT^^^un^ioio 
 
 CI 00 00 000 
 
 O"* wo a 
 « 10 »^ >-. 
 
 N r^io 0. 
 
 MO 0,00 
 
 -^-tO w 
 
 *0 r- (fXS 0> 
 
 M <*)0 r-* 
 
 M H M M M 
 
 00 n M n 
 t^OOO OM 
 
 M M nooo 
 
 M\0 ^ r- m 
 
 fOt- t>.M « 
 
 o> (^00 ^ 
 
 0'*aio'*'*fOM foi- 
 r«r.r«ooao O o> a 
 
 ro-* w (M^ 
 
 (*)r-MO M 
 
 <»> M»0 M w 
 
 W M M (O M 
 
 r~ t- liiw o o O o o Oi 
 
 r^Orf)««NMHMCi 
 
 J3 
 
 .» 
 
 « IS 
 
 •S -fift 
 
 •^ bo O 
 
 S '£°- 
 
 P. 
 
 •=c 
 
 5x 
 
 c o o 
 
 ■- 2 2? 
 
 OJ 0) '■' 
 
 IH C N "f^ 
 
 P-00 O" O "H M f^ ^ lO-O 
 
 OtOOOOOOOOO 
 000000 000'00>0>0> 
 
142 Some High School Statistics and Their Probable Meaning 
 
 Some of the principal limiting factors which enter into the 
 growth of high schools and high school opportunities during a 
 given period, in any given state as a whole, or in the com- 
 munities of that state are: first, the economic condition of the 
 state, the economic conditions of the communities making up the 
 state, and the economic conditions of the individuals making up 
 the communities ; second, the distribution of the population of the 
 state in terms of communities, and the distribution of the indi- 
 viduals in these communities ; third, the social composition of the 
 state, its distribution in terms of communities, and in terms of 
 individuals in communities ; fourth, the social attitude of the 
 state as a whole, of communities as wholes, and of the individuals 
 making up these communities; fifth, the relative degree of de- 
 velopment of secondary education already attained in the state, 
 and in the various communities of the state. 
 
 The economic condition has two principal phases ; the one, that 
 phase which enables the community individually or with the assist- 
 ance of other communities represented in the county, or in the 
 state, to raise the necessary funds to support the institution of sec- 
 ondary education ; the other, that phase which hinders or permits 
 the parent or guardian to dispense with the income arising from 
 the productive industry of the individual youth, and to feed, 
 clothe, and house him during the period of his attendance upon 
 such institution. 
 
 The distribution of population affects both of the above phases, 
 because the distribution of wealth usually coincides with the 
 distribution of population. It also adds another factor to the 
 first of the above phases, namely this, that the per capita cost of 
 the same quality of secondary education decreases, to a certain 
 extent, as the enrollment in a given school increases. It is the 
 distribution of wealth and population that largely determines the 
 necessary degree of county or state aid to secondary education. 
 The distribution of population raises, with the parent or guardian, 
 the question of transportation to and from the school, or the 
 question of board and lodging away from home, or both. It also 
 raises the social question as to whether or not the advantages of 
 a secondary education are outweighed by the disadvantages 
 arising out of the situation presented when the child is com- 
 pelled to leave home at such an early age. 
 
Some High School Statistics and Their Probable Meaning 143 
 
 The social composition affects the situation both positively and 
 negatively. It may relatively increase or decrease the general 
 financial and social support of such institutions, and it may 
 relatively increase or decrease the attendance upon them. The 
 negro population of the South unquestionably relatively decreases 
 the financial support and enrollment of such schools, and it also 
 decreases largely the sum total of the favorable social attitude 
 toward them. The great foreign populations resident in our 
 large cities affect the situation negatively in these respects. On 
 the other hand certain local communities composed of selected 
 individuals from other regions may affect it positively. Such 
 communities may be found upon the outskirts of our great cities, 
 in certain resident towns and cities such as Denver and Colorado 
 Springs in Colorado, and in certain favored regions like the 
 Santa Clara Valley in California. 
 
 The social attitude also has two aspects as follows: first, do 
 the parents or guardians of the prospective high school pupils 
 in any given community regard a secondary education as essen- 
 tial to the equipment of the children under their care, and if so, 
 is this feeling sufficiently strong in them to overcome any 
 economic considerations that may arise on account of the 
 individual pupils under their care; second, does the community 
 as a whole regard the establishment and maintenance of a public 
 high school a social necessity and duty, and if so, is this social 
 attitude sufficiently strong to overcome the financial difficulties 
 arising out of the situation. 
 
 The relative degree of development of secondary education 
 in the community and in the state has been influenced by the 
 absolute age of the state and the community, their degree of 
 evolution, their economic condition, their distribution of popula- 
 tion, their social composition and their social attitude. The 
 absolute limit to the development of secondary education in the 
 state as a whole, if an absolute limit is possible, is reached only 
 when every individual of secondary school age and qualification 
 in the state has within his reach such secondary educational 
 opportunities as may not be further improved by the best talent 
 of his time supplied with all the necessary funds. The absolute 
 limit of enrollment in the secondary schools of a given commu- 
 nity or state cannot then exceed the actual number of individuals 
 
144 Some High School Statistics and Their Probable Meaning 
 
 of secondary school age in the said community or state. At a 
 low estimate one-fourth of the census, 5-18, is of high school 
 age, so that the maximum of relative enrollment in the high 
 school or schools of any normal community is 25 persons per 
 100 of census, 5-18. Since then the high school enrollment of 
 no community under consideration has exceeded 10.87 individuals 
 per 100 of census, 5-18, and most of these communities fall 
 below 8 individuals per 100 of census, 5-18, and since the in- 
 creased favorable social attitude resulting from the increased 
 number of individuals vitally interested in these schools, will 
 probably largely overbalance the difficulty experienced in making 
 any final increment up to a much larger number per 100 of 
 census, 5-18, the question of such final increment need not be 
 considered in comparing the relative increase in such schools 
 in any given state, provided that we take into consideration the 
 other factors already named. 
 
 An adequate study of the development of high schools in any 
 given state includes all of these factors in their most complicated 
 form. The available statistics upon the distribution of wealth, 
 population, social composition, and social attitude toward educa- 
 tion, cannot to any great extent be secured. The per capita 
 wealth of states and cities can be found, but unless we have its 
 distribution in relation to the distribution of population in units 
 at least as small as townships, we can do little or nothing with 
 it, in so far as it relates to rural high schools. In like manner 
 the distribution of the different elements composing the popula- 
 tions of these small units is essential to a complete study of the 
 problem of the extension of rural secondary educational opportu- 
 nities. The attitude of the social mind toward secondary educa- 
 tion is even more difficult to measure, since any such attitude 
 is a complex of tradition, emulation, imitation, fashion, and 
 personal or family exploitation of the community wealth. It 
 can be measured, but we have as yet no adequate measure of it. 
 
 Many of the states have attempted to equalize somewhat the 
 secondary educational opportunities by legislative acts. In many 
 cases they have succeeded in relieving the economic pressure 
 attendant upon the establishment and maintenance of secondary 
 schools. In others they have relieved the individual parent or 
 guardian of a part of the economic pressure by merely shifting 
 it to the local community. The degree of relief from such eco- 
 
Some High School Statistics and Their Probable Meaning 145 
 
 nomic pressure varies, of course, directly with the increase of the 
 size of the unit of social organization bearing the burden. 
 
 Since the various states are in different stages of economic, 
 social, and political evolution, it will be necessary in discussing 
 the statistics of such states, to consider the evolutionary stages 
 of development of the problem of secondary education in each 
 of them. The steps in the evolution of the high school in any 
 normal society which is in a formative stage of development, is 
 in effect as follows : 
 
 First, it is necessary that there shall be a considerable number 
 of pupils who have completed the elementary school and who 
 are desirous of further education which is not available in the 
 community. 
 
 Second, the elementary course of study is, after a vigorous 
 campaign, extended so as to include certain high school branches 
 of study to be taught by the regular force of the elementary 
 school, or a one or two year high school is established which 
 is supported by an additional tax and taught by a special high 
 school teacher. 
 
 Third, an increase in enrollment occurs with an accompanying 
 tendency to extend the course to include the third and fourth 
 years of the high school. 
 
 Fourth, an increased tax is levied and one or more additional 
 teachers are employed. 
 
 Fifth, an increased demand for higher qualifications of 
 teachers arises, and a consequent raising of the standard of effi- 
 ciency occurs. 
 
 In short the high school in its normal development passes 
 through the increased enrollment stage, and the increased teacher 
 stage, up to a certain degree, before its real refinement begins. 
 This is essential because the institution itself must in process of 
 its making react continuously upon the social mind, thus securing 
 a social attitude in the community that will enable it to proceed in 
 its development. 
 
 As a result of this the first thing to be looked for in a state 
 that has not evolved its secondary educational system to any large 
 degree, is an increase in the number of high schools, followed 
 by a more rapid increase in enrollment in these schools. It is 
 an utter impossibility for a community that has previously given 
 
146 Some High School Statistics and Their Probable Meaning 
 
 no secondary educational opportunities, to suddenly evolve a 
 large prosperous secondary school of high grade, unless such a 
 community is a new one composed of an aggregation of individ- 
 uals of considerable wealth, and with the proper social attitude 
 previously developed elsewhere. 
 
 Since in regard to the development of secondary education,, 
 the rural community is in a stage of development similar to that 
 of the new state, it could not be expected to maintain the same 
 standard of excellence in its high school as that maintained in 
 the older high schools of the cities, even if the economic problem 
 were completely solved for it. In view, then, of the fact that the 
 rural high school is in its infancy in most of the states, the best 
 measure of its development and present status will be the 
 measure of numbers; and since upon the whole the city with 
 less than 8000 inhabitants will not have more than one high 
 school the measure here must be an absolute one, not regarding 
 the increase, but the spread, of population. 
 
 Of course the only real measure of the extension of secondary 
 educational opportunities is the relative number of pupils of 
 secondary age and qualifications that are within actual reach of 
 high or other secondary schools; and the measure of the quality 
 of education given in these schools is in direct proportion to the 
 relative number of teachers employed, their training, their teach- 
 ing ability, and the kind of apparatus furnished them. But since 
 such information as is implied in the above cannot all be secured 
 we shall confine ourselves to the statistical matter at hand. 
 
 To recapitulate then, in view of the material at hand: 
 
 The best measure of the extension of secondary educational 
 opportunities to rural communities will be the absolute increase 
 in the number of high schools in districts, villages, and towns. 
 
 The best test of efficiency and of economic support will be the 
 number of teachers employed to the school. 
 
 The best rough measure of both the distribution of high 
 schools and the social attitude in rural communities will be the 
 rapidity of relative increase of enrollment in high schools outside 
 of cities, together with the relative increase or decrease of the 
 number of secondary pupils in schools other than high schools. 
 
 The stage of evolution of secondary education in the state as a 
 whole, in cities of the state, and in the rural communities of the 
 state, will be best shown by the relative increase and status of 
 
Some High School Statistics and Their Probable Meaning 147 
 
 enrollment in all secondary schools of the state, in high schools 
 in cities of the state, and in high schools in the rural commu- 
 nities of the state. 
 
 Interpreted thus, and in view of the four principal limiting 
 factors which enter into the growth, the support, the distribution 
 and the efficiency of high schools, namely, the economic condition 
 and the distribution of wealth, the distribution of population, 
 the social attitude, and the social composition with the distribu- 
 tion of its elements, we shall be able to arrive at a just estimate 
 of what the various states are doing for the secondary education 
 of their rural youth. 
 
 6 
 7 
 6 
 5 
 
 4 
 3 
 
 2 
 I 
 
 
 -^ 
 
 C=:] 
 
 »nowin0 ni 
 >upilsto.e 
 
 hatei-MAiNE 
 
 • •f hifh iwl lecontarii Jrtiool 
 th 100 otMnfcus— J to 18. 
 
 
 ^»* 
 
 »« 
 
 
 
 •v 
 
 
 
 
 
 '''' y 
 
 ^^:; 
 
 
 
 **s 
 
 
 
 7 
 
 / 
 / 
 
 
 
 
 -'" 
 
 
 \ 
 
 ... 
 
 
 / 
 
 y 
 
 
 ■ 
 
 
 
 9l)f>~l54. 
 
 
 NO.R 
 
 JR"AL H!' 
 
 •HSCH( 
 
 0L3. 
 
 
 
 
 
 
 
 
 
 
 
 
 597-142 
 
 
 
 
 
 
 
 
 
 
 •— •■ 
 
 inRiiralH 
 InCitiiH. 
 Total Sec 
 InSchoo 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 .Pupils. 
 
 
 
 
 
 
 1897 98 99 00 01 02 03 C4 05 1 
 
 Maine: The above high school statistics for Maine do not 
 tally with those of the state reports for the same years (see 
 chapter V). This is in all probability due to the fact that 
 many of the schools giving only partial high school work did not 
 report to the Commissioner of Education. At any rate the same 
 schools have reported continuously through the ten years, and 
 
X48 Some High School Statistics and Their Probable Meaning 
 
 12 others have been added during this period. It will then be 
 impossible to compare the relative figures and curves for this 
 state with those of others. 
 
 The slow increase in the number of schools is due doubtless 
 to two factors; first, the law providing a state subsidy to such 
 schools has been in operation since 1872, and most of the commu- 
 nities that were able to support such schools established them 
 many years ago; second, entrance examinations have been insti- 
 tuted for some years, and the standard of these has been con- 
 tinually advanced, so that some of the schools that might 
 otherwise be listed have been eliminated. 
 
 A gradual iircrease in the standard of excellence of these 
 schools has occurred in the past few years as is shown by the 
 increase in the average number of teachers employed per school 
 in the rural high schools. In nine years the one teacher rural 
 high schools have decreased from 43 to 41 per cent, of the whole, 
 and the two teacher rural high schools have decreased from 
 76 to 50 per cent, of the remainder. 
 
 The relative enrollment in city high schools shows a substan- 
 tial increase, the relative enrollment in rural high schools shows 
 but a very slight increase, the relative enrollment of secondary 
 pupils other than high school pupils shows a large relative de- 
 crease, and the relative enrollment of secondary pupils in all 
 types of schools shows but a very slight increase. Judging from 
 the more rapid development of the preceding six years and from 
 the much slower development of the nine years under considera- 
 tion, one would be compelled to conclude that the evolution of the 
 high schools of the state is under the present social and legal 
 status almost completed.^ 
 
 Massachusetts: The number of rural high schools in the 
 state has practically remained the same during the nine years 
 under consideration. The number of city high schools has, 
 however, increased from 64 to 88. Most of this increase is 
 
 'The manufacturing and agricultural populations of Maine are about 
 equal in numbers, including about 57 per cent, of the whole. About 15 
 per cent, of the whole is employed in trade and transportation. The 
 foreign population is relatively small and is to be found mostly in the 
 cities. As to the distribution of the population more than 50 per cent, of 
 the total area of the state has but from 6 to 18 inhabitants to the square 
 mile, and about 37 per cent, has but from 18 to 45 inhabitants per square 
 mile. 
 
Some High School Statistics and Their Probable Meaning 149 
 
 undoubtedly due to the fact that many towns classed as rural 
 have, upon an increase of population, passed to the city class. 
 Thus it will be seen that the actual increase in the number 
 of high schools in rural communities was, for the period, 25 
 or less. This increase in the number of city high schools and 
 the lack of increase in the number of rural high schools is par- 
 
 9 
 8 
 7 
 6 
 5 
 4 
 3 
 
 2 
 1 
 
 
 
 Plate n MASSACHUSETTS 
 
 51iowlagfio.of higtidnd secondary scfiool 
 pupilsTb «dch 00 of cenius - 5 ta IB 
 
 
 / 
 
 
 
 
 
 
 
 
 
 / 
 
 
 ,.-' 
 
 
 
 
 
 
 
 --••*"' 
 
 
 .-' 
 
 ---*^ 
 
 • •' ••"" 
 
 
 
 
 
 • •' 
 
 ^**^r 
 
 
 
 
 
 /^' 
 
 ..— •• 
 
 
 y 
 
 11^ 
 
 
 
 ^- 
 
 ^^- 
 
 
 ^"^ 
 
 
 / 
 
 
 
 
 « 
 
 6-162 ai 
 
 NO.' 
 
 ?URAL HI 
 
 in jcno 
 
 )ij 
 
 
 
 RALHS 
 
 Tr H.s. . 
 
 
 
 — ,N^, 
 
 
 
 — W5 
 
 J. 6ec.pu 
 tnooi} M 
 
 ""• ,8' 
 
 T d.S. 
 
 7-161 a 
 
 
 = 
 
 
 = 
 
 
 
 
 
 
 ^-— ' 
 
 ^V 
 
 
 . 
 
 
 
 
 
 
 
 
 
 1 1897 98 99 00 01 02 . 03 04 03 | 
 
 tially explained by the fact that the total census, 5-18, for cities 
 has increased 27 per cent., while the total census, 5-18, for rural 
 communities has decreased 27 per cent. At the same time the 
 total census, 5-18, in the state has increased 12 per cent. 
 
 The absolute increase in the number of secondary pupils in 
 the state as a whole was 49 per cent., the absolute increase in 
 the number of high school pupils in cities was 74 per cent., and 
 the absolute increase in the number of high school pupils in 
 rural communities was but 16 per cent. The relative increase 
 
150 Some High School Statistics and Their Probable Meaning 
 
 in the number of secondary pupils in the state was 32 per cent., 
 the relative increase in the number of high school pupils in the 
 state was 39 per cent., the relative increase in the number of 
 high school pupils in cities was 24 per cent., and the relative 
 increase in the number of high school pupils in rural districts 
 was 100 per cent., while there was practically no relative increase 
 in the number of secondary pupils other than high school pupils. 
 
 There was a substantial increase in the average number of 
 teachers to the school in the rural high schools, the average 
 number rising from 2.9 in 1897 to 3.7 in 1906, which makes an 
 increase of 27 per cent. The relative number of one teacher 
 high schools has decreased from 29 to 7 per cent, of the whole, 
 and the relative number of two teacher high schools has de- 
 creased from 47 to 30 per cent, of the remainder. 
 
 Summing up the above we find that the spread of rural high 
 schools in the state has been comparatively small, that the in- 
 crease of relative enrollment in these schools has been enormous, 
 that the increase of relative enrollment in city high schools has 
 been reasonably large, that the relative number of pupils enrolled 
 in schools other than high schools has remained about the same, 
 that the total relative enrollment of secondary pupils in all types 
 of schools in the state shows a substantial increase, that the 
 average number of teachers to the school in rural high schools 
 has largely increased, and that the relative numbers of one and 
 two teacher high schools have largely decreased. 
 
 The tremendous relative increase in enrollment in rural high 
 schools, the comparative lack of increase in the number of these 
 schools, and their increased efficiency, as measured by the large 
 relative increase in the number of teachers employed in them 
 are no doubt largely due to the workings of the free tuition law 
 of the state, which, as will be pointed out in the following chap- 
 ter, does not encourage the establishment of high schools. As 
 stated elsewhere an act was passed in 1891 compelling towns 
 not supporting high schools to pay the tuition of their qualified 
 secondary pupils in outside high schools. This was followed in 
 1895 by an act providing for the complete reimbursement of the 
 poorer towns. In 1902 a new act was passed providing for the 
 reimbursement, in part or in whole, of all tuition fees paid by 
 towns of less than 500 families, provided that they did not sup- 
 port a high school ; while up to the end of this period towns of 
 
Some High School Statistics and Their Probable Meaning 151 
 
 less than 500 families supporting high schools received but 
 $300.00 each per annum. Another factor which influenced the 
 decrease of one teacher high schools was the act of 1902 which 
 provided that a high school must employ at least two teachers 
 in order to receive the subsidy of $300.00. 
 
 It appears, then, that the high school acts of Massachusetts 
 are upon the whole tending to refine the secondary educational 
 institution, rather than to increase its spread or distribution. 
 This condition of affairs would be highly satisfactory if the 
 distribution of high schools was also sufficiently extensive. This 
 is, however, not the case as is shown by the figures given in 
 chapter VI of this study. ^ 
 
 New Jersev : The number of rural high schools shows an 
 increase of 34 per cent, in the nine years from 1897 to 1906, 
 and the number of city high schools shows an increase of 65 
 per cent. The large increase in the number of city high schools 
 is largely due to the fact that several of the towns have passed 
 into the city class during the period, so that the actual spread 
 of high schools over the territory is represented by the actual 
 increase in the number of rural high schools plus a large part 
 of the increase in the number of city high schools. The total 
 increase in the number of both rural and city high schools was 
 for the period, 42 per cent. 
 
 There has been but a slight increase in the average number 
 of teachers employed to the school in the rural high schools in 
 the state. The number of one teacher high schools has rela- 
 tively decreased from 21 to 20 per cent, of the whole, and the 
 number of two teacher high schools has decreased from 29 to 
 21 per cent, of the remainder. 
 
 The statistics show a very large increase in the gross number 
 of pupils enrolled in city high schools, and a slight increase in 
 the gross number of pupils enrolled in the rural high schools. 
 The total number of secondary pupils enrolled in all of the vari- 
 
 'The agricultural population of Massachusetts is very small, not exceed- 
 ing 6 per cent, of the whole. About 46 per cent, of the whole is engaged 
 in manufacture and about 23 per cent, in trade and transportation. The 
 foreign population is very large (30 per cent.), and is well distributed over 
 the territory. The total population is, upon the whole, well distributed, 
 about two-thirds of the western end of the state having a population 
 of from 45 to 90 individuals per square mile, and the remainder 90 or more 
 individuals per square mile. 
 
152 Some High School Statistics and Their Probable Meaning 
 
 ous types of schools in the state also shows a very large absolute 
 increase. The number of census children has, however, also 
 largely increased particularly in the cities so that these figures 
 do not give the actual development for the period. 
 
 The gross increase in the number of census children, 5-18, was 
 for the state 21 per cent., for cities 32 per cent., and for rural 
 communities less than 4 per cent. The gross increase in the 
 total number of secondary pupils was, for the entire state, 61 
 per cent., while the gross increase in the number of high school 
 pupils was, for cities, 138 per cent., for rural communities, 19 
 per cent. The relative increase in the number of secondary 
 pupils enrolled in all types of schools was 34 per cent. ; and the 
 relative increase in the number of high school pupils was, for 
 the entire state, 58 per cent., for cities of the state, 79 per cent., 
 and for rural communities 15 per cent. During the same time 
 the relative number of secondary pupils enrolled in all types of 
 schools other than high schools decreased 16 per cent. The great 
 difference in the relative increase of enrollment in the city and 
 rural high schools is probably largely explained by the fact that 
 many of the larger rural high schools passed over into the city 
 clas$ during the period under consideration. It appears then, 
 from the statistics preceding the period under discussion and 
 from the accompanying curves that the status of secondary edu- 
 cation in New Jersey was exceedingly low in 1891 and that it 
 has not greatly increased in the succeeding fifteen years. It is 
 true that the relative increase in enrollment has been fairly large, 
 but the general status is so low that the curves show no great 
 inclination. At the present rate of increase it will take New 
 Jersey in the neighborhood of fifty years to reach the present 
 status of secondary education in Massachusetts. 
 
 It is a difficult matter to discover the cause for this condition 
 of affairs. In 1900 New Jersey had the densest population of 
 any state in the Union, excepting ^lassachusetts and Rhode 
 Island. This population is upon the whole well distributed over 
 the territory. The foreign population does not nearly equal that 
 of Massachusetts and it is in general confined to the larger cities, 
 which show the largest relative increase in high school enroll- 
 ment. The Negro population is small, the relative proportion 
 of illiterates is low, and three-fifths of the population is urban. 
 There are relatively a large number engaged in agriculture, rela- 
 
Some High School Statistics and Their Probable Meaning 1 53 
 
 tively a smaller number engaged in manufacture and relatively 
 a larger number engaged in transportation than in Massa- 
 chusetts. A large proportion of the school funds is practically 
 raised by the counties and distributed upon the teacher and 
 aggregate daily attendance basis, so that financially the districts 
 are better off than those of most other states. It is true that 
 the population has been increasing very rapidly by immigration 
 in recent years, but the relative increase has been but slightly 
 
 n: 
 
 JZ 
 
 PJate IJI-NEW JERSEY 
 
 fiufth % efch lot) cft cenjm — A fa IS 
 
 -IN llUltRL HA 
 
 •— — IK City M.S. 
 
 •-— TOTSL 5E0.PUP1U 
 
 "— — WStHMLJ «DT H.3. 
 
 T^^r>- 
 
 I 
 
 reO«r75, 
 
 NO.RURflL tflfiH 5CH601S 
 
 t69>69 
 
 1857 98 99 00 02 03 (H 05 
 
 s::r:z: 
 
 greater than that of Massachusetts, and the relative number of 
 foreign born among these immigrants has been much lower than 
 in the above state. 
 
 Since then neither the economic condition, the distribution of 
 population, nor the social composition, is sufficient cause for the 
 relatively low status of secondary schools in this state, the real 
 cause must be sought in the social attitude of the people toward 
 this particular type of edvication and institution. It would seem 
 upon the whole that the parents or guardians of the youth in 
 this state are not as much interested in the secondary education 
 of their children as those of most other states. Nor is the com- 
 munity as a whole as vitally interested in the institution of 
 
154 Some High School Statistics and Their Probable Meaning 
 
 secondary education as other communities. It is not the inten- 
 tion to go into this matter any further here, and yet it might 
 be well to suggest the fact that the school laws of this state never 
 mention such an institution as the high school, while in most 
 other states the members of the district school boards are con- 
 stantly exposed to the unconscious influence wrought by the 
 attitude of state as expressed in these laws. 
 
 California: The increase in the number of high schools in 
 California from 1897 to 1906 has been very great, rising from 
 71 to 128, which makes an increase of 80 per cent. In addition 
 to this the number of city high schools increased from 15 to 23, 
 or 73 per cent. In view of the fact that a part of the increase in 
 the number of city high schools was due to the passing of certain 
 towns into the city class, it appears that at least 60 new high 
 school districts were created during the nine years. 
 
 The increase in the average number of teachers employed to 
 the school in rural high schools has also been remarkable, rising 
 from 2.8 in 1897 to 4.8 in 1906. The number of one teacher 
 high schools has decreased from 12 to i per cent, of the whole, 
 and the number of two teacher high schools has decreased from 
 46 to 6 per cent, of the remainder. 
 
 The increase in aggregate enrollment has also been remarkable, 
 amounting to 127 per cent, in the case of the total secondary 
 enrollment, 134 per cent, in the case of cities, and 147 per cent, 
 in the case of rural districts. The relative increase based upon 
 census, 5-18, has been for all secondary pupils loi per cent., 
 for pupils in city higla schools 93 per cent., and for pupils in rural 
 high schools 152 per cent. ; while for secondary pupils in all types 
 of schools other than high schools there has also been a relative 
 increase of 47 per cent. 
 
 The accompanying curves show that the rapid increase in 
 relative enrollment began in 1899-1900. It has also been pointed 
 out that the relative increase in secondary pupils was, for the 
 six year period beginning with 1891, much slower. The first 
 large increase in the number of rural high schools also occurred 
 in 1899-1900. This was the period of public agitation for the 
 purpose of securing legislation leading to the state aid of secon- 
 dary education. In the early part of the year 1901 the legislature 
 submitted the constitutional amendment which legalized the 
 levying of a state tax for the support of high schools. In 1902 
 
Svme High School Statistics and Their Probable Meaning 155 
 
 the amendment was adopted by a very large majority. In 1903 
 the act providing state aid was passed. 
 
 The large relative increase in the enrollment in rural high 
 schools was probably largely due to two factors as follows: 
 first, the increase in the number of rural high schools due to the 
 substantial state aid offered, and the awakened public sentiment 
 in favor of secondary education brought about by the agitation 
 
 9 
 8 
 7 
 6 
 5 
 4 
 3 
 2 
 I 
 
 Plate )Y-!CAL1F0RNIA .. 
 
 3ftoirt'"C PO. of h|oh tnd SCfOndiryjAool 
 pvp,\s To each tPO of censy/i ~ S^ *3 
 
 -.-y 
 
 ■——•■"*•" •iWtoU' war tU- 
 
 m7 98 s9 00 CI ffiz 03 04 es 
 
 of the question and the appearance of the high school tax item 
 upon the tax receipts; second, the favorable public sentiment 
 which reacted upon the individuals and caused them to make 
 greater efforts and sacrifices to keep their children in school 
 beyond the elementary school age. The comparatively large 
 relative increase in the enrollment in city high schools was also 
 due to two factors ; first, the awakened public sentiment ; second, 
 the throwing of their doors open to all comers without any tuition 
 
156 Some High School Statistics and Their Probable Meaning 
 
 charge from 1903 to 1905, and then, only with such a charge as 
 they saw fit to make not in excess of the actual cost of instruction 
 less the amount received from the state upon account of each 
 pupil in attendance. 
 
 Even the curve representing the relative enrollment in secon- 
 dary schools other than high schools shows the effect of the 
 awakened public interest in secondary education. 
 
 The legislative acts of California together with the accom- 
 panying favorable public sentiment has resulted ; first, in a great 
 spread of high schools over her territory; second, in a great 
 relative increase of enrollment in those schools ; third, in an 
 increased efficiency as measured by the addition of many and 
 better teachers." 
 
 Colorado : The number of high schools in this state increased 
 from 31 to 42, or 35 per cent, in the nine years under considera- 
 tion. There was, however, a much larger increase in the average 
 number of teachers per school in the rural high schools, the 
 average rising from 3.0 to 4.3. The relative number of one 
 teacher high schools decreased from 19 to 4 per cent, of the 
 whole, and the relative number of two teacher high schools 
 decreased from 32 to 15 per cent, of the remainder. 
 
 The curves of average enrollment in high schools show a 
 great irregularity during the period from 1899-1900 to 1902-3. 
 This irregularity is due to the fluctuation of census for the suc- 
 cessive years, and to some extent to the opposite fluctuation of 
 high school enrollment. This fluctuation of census and high 
 school enrollment was no doubt largely due to the shifting of the 
 population and the financial condition brought about by the 
 industrial upheaval, which resulted from the prolonged struggle 
 
 'Nearly one-half of the area of California has an average of less than 
 2 inhabitants per square mile, nearly one-fourth haS an average of from 
 2-6, approximately three-sixteenths has from 6-18, about one-seventeenth 
 has from 18-45 3"d the remainder has from 45-90. The distribution of 
 population is not, however, as disadvantageous to the support of the high 
 schools as might appear from the above, since a large number of the 
 people in the sparsely settled districts dwell in villages and small towns. 
 About 24 per cent, of the population is engaged in agriculture, about 25 
 per cent, in mining and manufacture, and about 22 per cent, in trade and 
 transportation. Nearly 27 per cent, of the population is foreign born or 
 colored ; this foreign element is relatively well dispersed through the 
 native population. 
 
Some High School Statistics and Their Probable Meaning 157 
 
 between the capital and labor elements in the state. Naturally 
 the cities show the result of this to a greater extent than the 
 rural communities, since the rural high schools are largely 
 located in agricultural regions. The increase in the relative en- 
 rollment of all secondary pupils is much more regular, showing 
 
 ■ I 11 ■ ■ I IP 1 ■ I ■■nlglPifc^iHi—pjMP^a— KiP 
 
 , Plate Y-COWRADO/ 
 
 Showuig na.or high and scio/xl^w/ 5(fioot 
 
 -Wl?l)IJAlHI6H^CtiOQlsH^:^ 
 
 snowuig ni).0T lligli flnO SCto/xIjKV 5(Bgot 
 Pu^ilj to eAch 100 (if CtnioS-j HTn tr\ 
 
 '^s 
 
 / 
 
 y 
 
 / 
 
 • /awf. 
 
 ■^: 
 
 ;i=-=^ 
 
 -t 
 
 /:- • >' 
 
 / 
 
 / 
 
 -A^ 
 
 Ar 
 
 ■ — •—• •TBT/B. SK.. Wras 
 
 ■■ - " W aaoOU «0T H.3. 
 
 1897 98 93 00 
 
 02 03 04 05 
 
 a large decrease only in 1902. This break in the regularity of 
 the curve is due to a large increase in the estimated census, 
 5-18, and a considerable falling off in the relative increase of 
 high school enrollment, particularly in the cities. The increase 
 in census, 5-18, in cities was 34 per cent., and the increase in 
 census, 5-18, in rural communities was 15 per cent. The gross 
 increase in the number of secondary pupils enrolled in all types 
 
158 Some High School Statistics and Their Probable Meaning 
 
 of schools was 83 per cent., the increase of enrollment in city 
 high schools was 88 per cent., and the increase of enrollment 
 in rural high schools was 100 per cent. The relative increase 
 in the number of secondary pupils enrolled in all types of schools 
 was 50 per cent., the relative increase in the enrollment in city 
 high schools was 39 per cent., the relative increase in enrollment 
 in rural high schools was 73 per cent., while the relative increase 
 in the number of secondary other than high school pupils was 
 but II per cent. 
 
 It seems then that the spread of high schools in the state for 
 the period under discussion has not been very great, when we 
 take into consideration the great increase of wealth in the state 
 and the comparatively small number of such schools already 
 established. The curves show a fairly large increase in the 
 relative number of secondary pupils in the state and particularly 
 in the rural high schools, while there has been but a very slight 
 increase in the relative enrollment of secondary other than high 
 school pupils. 
 
 It would appear that the time is ripe in Colorado for the state 
 to assume a part of the burden of secondary education in the 
 poorer and less densely populated regions. The showing of the 
 relative numbers enrolled in rural and city high schools would 
 warrant this statement. Relatively less than half as many of the 
 rural youth as of the city youth are in high schools. 
 
 Washington : The increase in the absolute number of high 
 schools in Washington has been, for the nine years under con- 
 sideration, remarkable, rising gradually from 30 in 1897 to 43 in 
 1900, and then suddenly increasing to 70 in a single year. The 
 increase was regular from this time with the exception of a 
 slight falling off in 1903, which was probably due to the legisla- 
 
 'About 21 per cent, of the people of the state are engaged in agriculture, 
 about 17 per cent, in manufacture, about 13 per cent, in mining, and about 
 22 per cent, in trade and transportation. About one-half of the area of 
 the state has less than 2 inhabitants per square mile, about two-fifths has 
 from 2-6 inhabitants per .square mile, about three-fortieths 6-18 inhabi- 
 tants perj square mile, and the remainder, or one-fortieth, 18-45 
 inhabitants per square mile. The mining population is, however, quite 
 largely grouped into towns of considerable size, and the agricultural popu- 
 lation is, in a large part of the region, fairly well massed. The foreign 
 population is not exceptionally large and is fairly well distributed, and 
 is mostly engaged in agriculture and mining. 
 
Some High School Statistics and Their Probable Meaning 15^ 
 
 tive act which placed a minimum requirement upon the number 
 of pupils that constituted a year grade. The gross increase for 
 the period amounted to 206 per cent. 
 
 The average number of teachers to the school in rural high 
 schools has increased from 1.8 to 2.6, or 44 per cent., while the 
 
 Plate VI -WASHINGTON , 
 
 SnoM'n? no. of ^u^h «nd 5€(ond«ru 5thooi 
 pi>j;iH'T» tM\ ipo of ceoius- 3 tn la 
 
 NO. RURAL HI6H SCHOOIS 
 
 • 1906-SZ 
 
 •1637-30 
 
 \ 
 
 7^ 
 
 L. 
 
 / 
 
 / 
 
 ■ IW UllRM in 
 
 • «»>^IK SCHOOL} HiH H.S. 
 
 -^ 
 
 1897 95 99 . 00 
 
 .7 
 
 7^ 
 
 / 
 
 ^ 
 
 y 
 
 y 
 
 02 03 04- 05 
 
 relative number of one teacher rural high schools has decreased 
 from 43 to 32 per cent, of the whole, and the relative number of 
 two teacher high schools has decreased from 64 to 43 per cent, 
 of the remainder. 
 
 With the exception of a minor fluctuation the relative enroll- 
 ment in city high schools slightly dropped, up to and including 
 the year 1902, when it rose regularly and very rapidly to an 
 
i6o Some High School Statistics and Their Probable Meaning 
 
 enormous height. The relative enrollment in rural high schools 
 increased very slowly for two years, then rapidly for one year, 
 then decreased slightly up to and including 1902, when it rose 
 rapidly and regularly to the end of the period. With a minor fluc- 
 tuation, the relative number of secorjdary pupils enrolled in all 
 types of schools rose slowly up to and including the year 1902, 
 thence very rapidly up to and including the year 1906, while the 
 relative number of secondary pupils enrolled in other than high 
 schools decreased very slightly. 
 
 The increase in census, 5-18, was for cities 120 per cent., and 
 for rural communities 22 per cent. The gross increase in the 
 total number of secondary pupils in the state was 196 per cent., 
 the gross increase in enrollment in city high schools was 289 per 
 cent., and the gross increase of enrollment in rural high schools 
 was 247 per cent. 
 
 The relative increase in the number of secondary pupils enrolled 
 in all types of schools was 107 per cent., the relative increase in 
 high school enrollment in cities was 77 per cent., and the rela- 
 tive increase in enrollment in rural high schools was 183 per cent., 
 while there was a slight relative decrease in the enrollment of all 
 secondary schools other than high schools. 
 
 It appears then, that in this state a very great increase in the 
 spread of high schools has occurred, which is no doubt in large 
 measure due to the state aid given to them. In considering this 
 fact it must be remembered, however, that almost a third of these 
 schools employs but one teacher. The proportion of one teacher 
 high schools has, however, in the last nine years materially de- 
 creased. The proportion of individuals enrolled in secondary 
 schools is at present quite high, the proportion enrolled in rural 
 high schools is rather low, but the proportion enrolled in city 
 high schools is remarkably high. There is nothing to my knowl- 
 edge in the legal status of these schools that will explain this 
 latter fact, nor is there anything to explain the sudden prolonged 
 upward inclination of the curve representing this enrollment for 
 the four years ending 1906. It seems that the explanation of 
 this condition must be due, either to a change in the social com- 
 position of the cities, to a very great social awakening, to the 
 fact that the people of the surrounding rural regions are sending 
 their children into the cities to secure the advantages of the 
 
Some High School Statistics and Their Probable Meaning i6i 
 
 secondary education offered there, or indeed to all of these 
 factors. 
 
 The curves for this state show clearly that the secondary edu- 
 cation is in a rapid stage of evolution. The enrollment in the 
 high schools of the cities is relatively far in advance of the en- 
 rollment in the rural high schools, but the relative increase in 
 enrollment in the rural districts for the last nine years has greatly 
 exceeded that of the cities. This condition may be found in any 
 of the commonwealths in this particular stage of their develop- 
 ment.* 
 
 Connecticut: The number of city high schools in the state 
 seems to have varied greatly in the successive years under con- 
 sideration. This was doubtless due to the fact that at least five 
 or six of the schools were located in towns that were continually 
 passing back and forth from the rural to the city lists. To secure 
 the actual increase of high schools in rural communities it will 
 be necessary to assume a stable number of high schools for cities. 
 Assuming then, that there are i6 city high schools we have for the 
 period an increase of lo rural high schools or, expressed in dif- 
 ferent terms, an increase of about 21 per cent. 
 
 The average number of teachers to the school in rural high 
 schools has increased from 2.5 to 3.2 or 28 per cent. The relative 
 number of one teacher high schools has decreased from 29 to 24 
 per cent, of the whole, and the number of two teacher high schools 
 has decreased from 47 to 22 per cent, of the remainder. 
 
 The gross increase in the census, 5-18, was, for cities 22 per 
 cent., and for rural communities 8.9 per cent. The gross in- 
 crease in the number of secondary pupils enrolled in all types of 
 schools in the state was 59 per cent. ; and the gross increase of 
 pupils in high schools was, for the cities 71 per cent., and for 
 the rural communities 65 per cent. The relative increase in the 
 
 'About 27 per cent, of the population of Washington is engaged in 
 agriculture, a little more than 20 per cent, is engaged in manufacture, 
 about 5 per cent, is engaged in mining, and about 18 per cent, is engaged 
 in trade and transportation. About one-third of the area of the state 
 has less than 2 inhabitants per square mile, about four-ninths has from 
 2-6 inhabitants per square mile, about one-fifth has from 6-18 inhabitants 
 per square mile, while the remainder or only about one forty-fifth of the 
 area has from 18-45 inhabitants per square mile. About 25 per cent, of 
 the population is either foreign born or colored. This foreign element is 
 to be found largely in or about the cities. 
 
1 62 Some High School Statistics and Their Probable Meaning 
 
 number of secondary pupils enrolled in all types of schools in 
 the state was 34 per cent. ; and the relative increase of pupils in 
 high schools in cities of the state was 40 per cent., and the rela- 
 tive increase of pupils in rural communities of the state was 51 
 per cent., while the relative increase in the number of secondary 
 pupils enrolled in schools other than high schools was 18 per cent. 
 
 9 
 8 
 7 
 6 
 5 
 4 
 3 
 2 
 1 
 
 
 
 MM 
 
 — 1 1 1 1 ■ '• 
 
 
 
 
 Plate VlhCONNECTICUT, . 
 
 SioMino BO. of tiioh ana. se<on<»«rw jcko* 
 pupils-^ e»£h- loo of ,c«nsu5_ Stole 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 MO. WjML H!5H SCHOOR 
 
 
 1 
 
 
 
 
 
 
 
 ..,.. I 
 
 
 
 ^ 
 
 
 
 
 — IN ilHOJlb NOr H.i. 
 
 
 
 m,m^ 
 
 
 
 
 
 
 »-•""* 
 
 
 ,-'* 
 
 
 
 
 ...-* 
 
 
 
 
 
 r**" 
 
 
 ^^•"* 
 
 "' 
 
 
 
 ^ 
 
 
 
 
 
 
 
 
 
 -_. 
 
 ^-^ 
 
 ^ 
 
 
 
 
 
 
 
 
 ^ 
 
 
 
 
 
 
 
 
 
 
 
 
 
 ... 
 
 ••< 
 
 >.— ._ 
 
 o_.— ■ 
 
 
 
 
 
 
 
 
 
 ^-'. 
 
 .^•^' 
 
 
 
 
 
 
 
 
 
 
 1697 
 
 .9 
 
 8 99 
 
 
 
 1 02 03 04 05 1 
 
 The laws providing for the reimbursement of tuition went 
 into effect in this state in 1897-8. Up to 1901 the state pro- 
 vided but two-thirds the amount of the tuition up to and includ- 
 ing $30.00 for each pupil. The operation of the law was limited 
 to towns with a tax list of $900,000.00 or less. In 1903 free 
 transportation with state reimbursement to the extent of one-half 
 the amount expended up to $20.00 for each pupil was provided 
 for by the legislature. 
 
 The curves of relative high school and secondary school at- 
 tendance show, in general, no great effect of this legislation if 
 
Some High School Statistics and Their Probable Meaning 163 
 
 indeed they show any such effect. For the four years preceding 
 the period under consideration the relative number of secondary 
 pupils in schools of all types slightly decreased. There is a con- 
 siderable rise in both the absolute and relative attendance in 1900, 
 but this period does not coincide definitely with any legislation. 
 There is of course no question but that a portion of the increase 
 is due to these laws but how great the influence has been would 
 be difficult to estimate. 
 
 In view of the density of population, its distribution and the 
 wealth of the state, it would seem that the status of secondary 
 education is rather low. The degree of efficiency of the rural 
 high schools, as measured by the number of teachers employed, 
 has somewhat increased during the period under discussion. 
 Taking into consideration the area of the state and the size, 
 density, and distribution of the population, the number of rural 
 high schools is much too small, and their spread as measured by 
 the increase of rural high schools has not been very great during 
 the period under consideration. This latter is probably the great- 
 est factor underlying the relatively low status of the relative en- 
 rollment in rural high schools. ° 
 
 Vermont : The number of high schools in Vermont has in- 
 creased in the nine years from 49 to 70, or 42 per cent. This has 
 been a fair increase when we take into consideration the distribu- 
 tion of population and wealth. The average number of teachers 
 to the school in rural high schools has but slightlv increased, 
 rising only from 2.4 to 2.5, or 4 per cent. The relative number 
 of one teacher high schools has increased from 20 to 30 per 
 cent, of the whole, while the relative number of two teacher his^h 
 schools has only decreased from 46 to 42 per cent, of the re- 
 mainder. 
 
 Taken as a whole the increase in the enrollment in secondary 
 schools both absolute and relative has been rather small. The 
 curve for city schools shows a considerable slope, but the relative 
 proportion of the population dwelling in cities is exceptionally 
 
 'The population is very dense in Connecticut, averaging about 155 
 individuals per square mile. Relatively speaking this population is very 
 evenly distributed over the territory. About 28 per cent, of it is either 
 foreign born or colored. This foreign element is also well distributed. 
 About 12 per cent, of the people are engaged in agriculture, about 46 per 
 cent, in manufacture, and about 19 per cent, in trade and transportation. 
 
164 Some High School Statistics and Their Probable Meaning 
 
 low so that the effect upon the curve for general attendance is 
 rather small. On the other hand the curve representing the en- 
 rollment in schools other than high schools shows a decided rela- 
 tive decrease. The statistics for cities for the year 1897 are so 
 irregular that we shall ignore them in presenting the absolute and 
 relative increases of census and enrollment for the period, so that 
 the figures to follow will apply only to the last eight years in 
 the case of such cities. These figures are then as follows : The 
 absolute increase in census, 5-18, was, for cities, 31 per cent., 
 and for rural communities, 2 per cent. The absolute increase in 
 the number of secondary pupils enrolled in all types of schools was 
 18 per cent., and the absolute increase in the number of high 
 school pupils was, for cities, 66 per cent., and for rural communi- 
 ties, 36 per cent. The relative increase in the number of secondary 
 pupils enrolled in all types of schools was 10 per cent. ; and the 
 relative increase in the number of high school pupils was, for 
 cities, 26 per cent., and for rural communities, 33 per cent. Dur- 
 ing the same period the relative number of pupils enrolled in 
 schools other than high schools decreased 37 per cent. 
 
 Referring to the curves of secondary and high school attend- 
 ance, we find that the curve representing the total relative num- 
 ber of secondary pupils in the state dips in the centre, reaching 
 its lowest ebb about the year 1901. This decline in relative num- 
 bers began in 1894, as is suggested by the note accompanying the 
 statistics for the state. Up to 1902 the curve representing rela- 
 tive high school enrollment in rural communities shows but a 
 slight increase in elevation; at this point, however, it began to 
 increase its slope much more rapidly. The curve for total sec- 
 ondary enrollment also began to increase its slope rapidly at this 
 point. The curve representing the enrollment in secondary 
 schools other than high schools also shows a slight tendency to 
 increase its slope. The curve representing relative enrollment in 
 city high schools began to increase its slope more rapidly in 1900. 
 The relative proportion of pupils and the relative proportion of 
 the population in the cities is however so small that the increase 
 in relative enrollment in these cities does not affect the general 
 increase for the state very greatly. Taking the foregoing into 
 consideration it would seem that the universal compulsory tuition 
 law of 1902 has had a stimulating effect upon the secondary 
 school attendance in the state. 
 
Some High School Statistics and Their Probable Meaning 165 
 
 To sum up, then, the increase in the number of rural high 
 schools has been fairly large, but their efficiency, as measured by 
 an increased teaching force has not improved much, and the in- 
 crease in the enrollment has been very small, when we take into 
 consideration the status of the attendance at the beginning of 
 
 No, RUR«y'liM*uOLS .' - 
 
 — — i.^i— ^a«r.-« 1906- 70 
 
 •169T-49 
 
 /^ 
 
 V 
 
 . '. Plate YHI-VERMONT^ I 
 
 5ft9wii»irf flo.of *'igh And sqtonAify 5<noe' I 
 pvf*\y^ gj(K JQO gf censor -5td Igf 
 
 'v/ 
 
 /^ 
 
 .-A 
 
 
 ^j:U 
 
 / 
 
 _3^ 
 
 / 
 
 / 
 
 V 
 
 ^- 
 
 -f- 
 
 •!;* (Tuwi. H.S. 
 a 
 
 ^ 
 
 1897 98 &9 00 01 02 03 04 05 
 
 the period. It is probable that the relative increase in the number 
 of secondary pupils will in the near future be small, unless some- 
 thing is done to equalize more nearly the economic burden at- 
 tendant upon the establishment of an increased number of rural 
 high schools, and an increased efficiency in those already 
 established/ 
 
 'The state of Vermont is, as a whole, rather thickly populated. This 
 population is mostly irregularly scattered over the territory. The foreign 
 element is, however, comparatively small and distributed fairly well with 
 
i66 Some High School Statistics and Their Probable Meaning 
 
 New Hampshire: The number of rural high schools in the 
 state has only increased from 46 to 48, or 4 per cent., and the 
 number of city high schools has only increased from 6 to 9. On 
 the other hand the average number of teachers to the school in 
 rural high schools shows a fair increase rising from 2.3 to 2.9, 
 or 26 per cent. ; while the relative number of one teacher high 
 schools has decreased from 34 to 16 per cent, of the whole, and 
 the relative number of two teacher high schools has decreased 
 from 43 to 40 per cent, of the remainder. 
 
 There is apparently something the matter with the statistics of 
 high school enrollment for the year 1897, the city enrollment 
 being much too low and that of the rural communities much too 
 high, while the census statistics show no great variation. After a 
 careful study of the statistics as a whole, together with a scrutiny 
 of the accompanying curves, it was decided in order to make up 
 the necessary analysis to add 400 to the enrollment for cities, and 
 subtract the same from that of the rural communities for the 
 year in question. With this correction the following figures were 
 worked out. The correction is also placed in the accompanying 
 plate of curves. 
 
 The census, 5-18, increased 42 per cent, in cities and decreased 
 14 per cent, in rural communities. The absolute increase in the 
 number of secondary pupils in the state was 79 per cent. ; and 
 the absolute increase in the enrollment of high school pupils was, 
 for cities 28 per cent., and for rural communities 41 per cent. 
 
 The relative increase in the number of secondary pupils en- 
 rolled in all types of schools was 20 per cent. ; the relative in- 
 crease in the number of pupils enrolled in all types of schools 
 other than high schools was 8 per cent. ; the relative increase in 
 enrollment in high schools in rural communities was 63 per cent., 
 while there was a decrease of 9 per cent, in the relative enroll- 
 ment in high schools in cities. 
 
 New Hampshire is the only state under consideration which 
 actually shows a decrease in the relative enrollment in high 
 schools in the cities. It is impossible with the information at 
 hand to find any explanation of this. The relative enrollment in 
 rural high schools shows on the other hand a substantial though 
 
 a tendency to concentration in the north central region. About 37 per cent, 
 of the people are engaged in agriculture, about 25 per cent, in manufacture 
 and about 14 per cent, in trade and transportation. 
 
Some High School Statistics and Their Probable Meaning 167 
 
 somewhat irregular increase; the irregularities in the curve are 
 largely due to variations in census. The curve shows no im- 
 mediate effect of the compulsory tuition law of 1901, the distinct 
 increase in slope beginning in 1903-4. Upon the whole the rela- 
 tive increase in the number of secondary pupils has been fair. 
 An unusual proportion of these pupils are, however, enrolled in 
 
 8 
 
 7 
 6 
 5 
 4 
 3 
 2 
 1 
 
 
 
 , Plate IX-NEW HAMPSHIRE . 
 
 pvpiU Xbe^th \09 of Census - 3 to 13 
 
 
 
 
 
 
 • 
 
 
 
 
 
 ..•' 
 ,.'' 
 
 
 
 
 
 • 
 
 ••• 
 
 ^#* 
 
 
 
 • •••••' 
 
 .•'•'* 
 
 
 
 — .— 
 
 — .^ 
 
 ""•^ 
 
 
 
 
 
 ,i« 
 
 
 
 
 ■V 
 
 
 
 
 
 :^ 
 
 
 
 
 ^ 
 
 
 
 
 / 
 
 
 
 
 
 r.ijjs.T 
 
 
 1 SCHOOL 
 
 .\ 
 
 06-48 
 
 
 
 
 ^--^ 
 
 
 
 
 
 
 
 I)U(!I|lH.&. 
 
 
 
 
 
 
 
 
 
 — .— .*-M« stnobts f«T It $. 
 
 
 Mff 
 
 1 1 1 
 
 1 
 
 97 98 99 00 01 02 03 04 05 I 
 
 other than high schools. Some advance has been made in the 
 matter of efficiency as measured by the increase in the relative 
 number of teachers employed in rural high schools, but there has 
 been practically no increase in the spread of high schools in the 
 state.* 
 
 "Most of the area of the state has a population of from i8 to 45 inhab- 
 itants per square mile, a small portion in the north, probably one-fifth of 
 the total area, has but from 6 to 18 inhabitants per square mile. The 
 foreign population is not exceptionally large, being about 22 per cent, of 
 the whole. It is mostly to be found in the extreme north and south 
 
1 68 Some High School Statistics and Their Probable Meaning 
 
 Michigan: The number of rural high schools in this state 
 has increased during the nine years from 257 to 359, or 39 per 
 cent. When we take into consideration the number already 
 established the increase has been very great, the actual spread 
 being measured, of course, by the absolute increase which was 
 102. On the other hand the average number of teachers to the 
 school in rural high schools has increased but very slightly, rising 
 only from 2.7 to 2.8, or less than 4 per cent. At the same time 
 the relative number of one teacher rural high schools has in- 
 creased from 19 to 24 per cent, of the whole, and the number 
 of two teacher rural high schools has increased from 35 to 40 
 per cent, of the remainder. Thus the relative efficiency of these 
 schools as measured by the number of teachers employed has 
 decreased. 
 
 The increase in the number of census children, 5-18, has been 
 for cities 20 per cent., and for rural communities 8 per cent. The 
 absolute increase in the number of secondary pupils in all types 
 of schools has been 35 per cent. ; the absolute increase of enroll- 
 ment in high schools has been, for cities 51 per cent., and rural 
 communities 31 per cent. 
 
 The relative increase in the number of secondary pupils has 
 been 21 per cent. ; and the relative increase in the number of high 
 school pupils has been for cities 25 per cent., and for rural com- 
 munities 20 per cent. ; while the relative number of secondary 
 other than high school pupils has remained about the same. 
 
 To sum up, there has been during the period under considera- 
 tion a very great spread of high schools in the state ; the enroll- 
 ment in the secondary schools has increased very much slower 
 than in the preceding six years, as suggested in the note printed 
 with the .statistics for the state ; and the actual efficiency of these 
 schools measured by the relative number of teachers employed has 
 decreased. The fact that the relative increase of enrollment in 
 cities has been greater than in rural districts, in disregard of the 
 fact that the number of rural high schools has increased enor- 
 mously, while the rural population has only increased slightly, 
 
 portions of the state. In the thinly populated northern region about one- 
 half of the inhabitants are foreign. About 22 per cent, of the population 
 is engaged in agriculture, about 43 per cent, in manufacture, and about 13 
 per cent, in trade and transportation. 
 
Some High School Statistics and Their Probable Meaning 169 
 
 must inevitably lead to the conclusion that there has been little 
 growth in the positive public sentiment toward secondary educa- 
 tion in the nonurban regions of the state. This may be partially 
 due to the fact that there are only 12 township high schools in 
 the state, all of the others being district schools which charged 
 tuition to all nonresident pupils whose parents or guardians had 
 to meet these obligations individually. Free tuition may however 
 be provided by the various districts hereafter. It would seem 
 
 i^kttX'Uv 
 
 X 
 
 ,^ Plate X'MlCHjiSAN::" 
 
 ^TWviinq n<o.af titOK and seconaAfy school 
 ptfp;u TJxjth IQV of censuj — B to 18 
 
 KO.RORAL Hi&H ittmiiy 
 
 mb-isa 
 
 T'KjTJitt 
 
 —•—^11 s<ito«is«tfr H.S. 
 
 1897 % 99 00 Q] 02 03 04 05 
 
 that a compulsory tuition law with partial or complete state aid 
 might do wonders in this state. A small state subsidy would also 
 work to increase the efficiency of such schools as are already 
 established, besides gradually creating others in the more remote 
 districts of the state. ^ 
 
 •About 30 per cent, of the area of the state has from 6-18 inhabitants 
 per square mile, about 45 per cent, has from 18 to 45 inhabitants per 
 square mile, and the remainder, or 25 per cent., has from 45 to 90 persons 
 per square mile. About 24 per cent, of the population is foreign, and this 
 foreign element is rather evenly scattered over the territory. About 33 
 per cent, of the population is engaged in agriculture, 22 per cent, in manu- 
 facture, 3 per cent, in mining, and 17 per cent, in trade and transportation. 
 
lyo Some High School Statistics and Their Probable Meaning 
 
 \\'^iscoNSiN : The number of rural high schools in Wisconsin 
 has increased during the nine years from 162 to 220, or 35 per 
 cent., and the number of city high schools has also increased 7, 
 making a total increase of 65, which largely represents the spread 
 of high school opportunities in the state. The increase in the 
 number of rural high schools from 1899 to 1900 was 50 of which 
 48 appeared upon the list for the first time. Apparently no change 
 occurred in the legal status at this period which would explain 
 this large increase. 
 
 The relative efficiency of these schools, as measured by the 
 average number of teachers to the school in rural high schools. 
 
 PMfiXI-yVJSCOWSIN *- , 
 
 ynaninz "o.ot hign and JtcondiiN jfliool 
 
 h-4--f-+ 
 
 1897 93 99 00 
 
 02 03 04 05 
 
 and the relative decrease of one and two teacher high schools, 
 shows a decided improvement. The average number of teachers 
 has increased from 2.6 to 3.5, or 34 per cent., the relative num- 
 ber of one teacher high schools has decreased from 19 to 1.8 per 
 cent, of the whole, and the relative number of two teacher high 
 schools has decreased from 41 to 28 per cent, of the remainder. 
 
 The increase in census, 5-18, has been, for cities 24 per cent., 
 and for rural communities 1.8 per cent. The absolute increase 
 in the number of secondary pupils enrolled in all types of schools 
 has been 56 per cent. ; and that of high schools has been, for cities 
 93 per cent., and for rural communities 52 per cent. 
 
 The relative increase in the total number of secondary pupils 
 has been 45 per cent.; and the relative increase of high school 
 
Some High School Statistics and Their Probable Meaning 171 
 
 pupils has been, for cities 54 per cent., and for rural communities 
 49 per cent. ; while the relative number of pupils enrolled in 
 schools other than high schools has remained about the same. 
 
 The curve for relative high school enrollment in rural com- 
 munities shows a sudden rise for 1900, and also carries with it 
 the curve of relative enrollment in all types of schools. This is 
 in large part due to the increased enrollment in rural high schools 
 Avhich is no doubt largely the result of the great increase in the 
 number of such schools. The free tuition law practically went 
 into effect in 1903, and the slight increased tendency of the curve 
 for relative rural high school enrollment to rise in the last two 
 years of the period, may be, and probably is, partially due to this 
 fact. 
 
 The relatively low status of high schools in cities of Wisconsin, 
 as measured by the enrollment in them, cannot, upon the whole, 
 be attributed to any factor other than social attitude. Compared 
 with that of cities, the status of rural high schools is very good, 
 when we take into consideration the distribution of population 
 and wealth in the state. The amount of direct state subsidy 
 given to these schools has been insufficient in the past to greatly 
 increase their spread in such a territory, but it has evidently 
 aided greatly in the improvement of their efficiency. The act of 
 1903 relating to township high schools will in all probability work 
 to increase their extent of distribution.^" 
 
 Minnesota : The growth in the number of rural high schools 
 in this state has for the nine years been very great, increasing 
 from 88 to 160, or 81 per cent. Thus it appears that the actual 
 spread of these schools as measured by numbers has been very 
 large. This result is not surprising when we take into considera- 
 tion the fact that Minnesota gives a very large state subsidy to 
 such schools as meet the requirements of the state authorities Not 
 only does the effect of the state aid show in the increase for the 
 total period, but a reference to the plate representing high school 
 development for the state will show that the increase of the 
 
 "About 34 per cent, of the area of Wisconsin has but from 6 to 18 inhab- 
 itants per square mile, about 48 per cent, but from 18 to 45, and about 
 18 per cent, from 45 to 90. About 25 per cent, of the population is foreign 
 born. This element is well distributed through the native population. 
 About 37 per cent, of the people are engaged in agriculture, 24 per cent, 
 in manufacture, and 14 per cent, in trade and transportation. 
 
1^2 Some High School Statistics and Their Probable Meaning 
 
 amount of state subsidy from $800 in 1900 to $1,000 in 1901, 
 and the subsequent increase to $1,500 in 1903 appears to have 
 affected definitely the lengths of the lines representing the relative 
 increase in the numbers of such schools, for these years. It will 
 be remembered that the Minnesota act requires no definite finan- 
 cial obligation upon the part of the community establishing such 
 a school. 
 
 The average number of teachers per school in these rural high 
 schools has increased from 2.8 to 3.8, or 35 per cent. At the 
 same time the relative number of one teacher high schools has 
 decreased from 5.6 to 0.6 per cent, of the whole, and the relative 
 number of two teacher high schools has decreased from 40 to 
 8.8 per cent, of the remainder. Thus it will appear that though 
 the state makes no financial requirement of the communities 
 establishing these schools, the requirements of the standard estab- 
 lished under the law has resulted in greatly increasing their 
 efficiency. These schools are all measured by the standard of 
 university requirement. 
 
 The increase in the approximate census, 5-18, has been, for 
 cities 37 per cent., and for rural communities 15 per cent. The 
 absolute increase in the number of secondary pupils enrolled in 
 all types of schools has been 92 per cent. ; and the absolute 
 increase in the number of high school pupils has been, for cities 
 67 per cent., and for rural communities 133 per cent. 
 
 A reference to the plate of high school development for the 
 state will reveal a great decline in the curve for relative enroll- 
 ment of high school pupils in cities for 1906. The cause of this 
 is due to a sudden and large increase in the approximate census, 
 5-18, for cities. Since the statistics end here it is impossible to 
 tell whether this represents an error due to a mistake of the 
 census office in estimating the population for that year, or 
 whether the estimates of the preceding years were too low. This 
 being the situation, it will probably be best to give the relative 
 increase for this item both in terms of the first eight years, and 
 the- full nine years. The relative increase in the number of secon- 
 dary pupils enrolled in all types of schools has been 56 per cent. ; 
 and the relative increase of high school pupils has been, in cities, 
 for eight years 36 per cent., in cities, for nine years 23 per 
 cent., and in rural communities loi per cent.; while the relative 
 
Some High School Statistics and Their Probable Meaning 173, 
 
 increase in enrollment of secondary pupils other than high school 
 pupils has been, for eight years 51 per cent., and for nine years 
 7 per cent. 
 
 The status of high schools in the cities of the state is not 
 exceptionally high and the relative increase in the enrollment in 
 the term of years under consideration has at best been relatively 
 rather low. The cause of this must again be sought largely in 
 
 a lack of public sentiment. The status of these schools in rural 
 communities as measured by relative enrollment is also very low, 
 but this is undoubtedly due to at least three factors as follows: 
 first, there are probably many one, two and three year high 
 schools in the state that receive aid as graded schools, and which 
 are not reported in the foregoing list; second, the wide distribu- 
 tion of population makes it difficult to establish and maintain 
 four year high schools in many communities ; third, there is evi- 
 
174 Some High School Statistics and Their Probable Meaning 
 
 dently a lack of favorable public sentiment in many of the 
 rural communities.^^ 
 
 Ohio: The number of rural high schools of this state has 
 increased in the period under consideration from 531 to 781 or 
 47 per cent. This is an enormous development: the spread of 
 such schools as measured by the absolute increase in numbers, 
 which was 250, has certainly been very great. On the other 
 hand the relative efficiency of these schools as measured by the 
 teachers employed has largely decreased. There has been no 
 gain in the average number employed, to the school, and the 
 number of one teacher high schools has increased from 41 to 
 45 per cent, of the whole, while the number of two teacher high 
 schools has increased from 53 to 85 per cent, of the remainder. 
 
 There has been an increase, in cities, of 27 per cent., in the 
 census, and a decrease in rural communities of 3.8 per cent. The 
 absolute increase in the number of secondary pupils enrolled 
 in all types of schools has been 41 per cent.; and the absolute 
 increase in the pupils in the high schools has been, for cities 
 54 per cent., and for rural communities 51 per cent. 
 
 The relative increase in the number of secondary pupils in 
 the state has been 31 per cent.; and the relative increase in the 
 number of high school pupils has been for cities 20 per cent., and 
 for rural communities 57 per cent. ; while there has been a rela- 
 tive decrease of 20 per cent, in the relative number of pupils 
 enrolled in secondary schools other than high schools. 
 
 A reference to the curves representing relative high and 
 secondary school enrollment for the state will show that their 
 inclination upward is considerably increased after 1903. This 
 is probably largely due to the fact that the legislature passed a 
 compulsory tuition law the preceding year. 
 
 "About so per cent, of the area of the state has but 6 to 18 or less 
 inhabitants per square mile, about 48 per cent, has but 18 to 45 inhabit- 
 ants per square mile and not to exceed 2 per cent, has from 45 to 90 
 inhabitants per square mile. Thirty per cent, of the population is of 
 foreign birth. This element is distributed all over the territory much as the 
 native population, but with a slight tendency to accumulate in the regions 
 of the cities. About 40 per cent, of the population is engaged in agricul- 
 ture, 17 per cent, in manufacture, less than 2 per cent, in mining, and 17 
 per cent, in trade and transportation. 
 
Some High School Statistics and Their Probable Meaning 17 j 
 
 The general status of secondary education in this state is upon 
 the whole rather low when we take into consideration the age 
 of the state, its wealth and density of population, and the distri- 
 bution of these. The evenness of the distribution and compo- 
 sition of population is evidenced by the nearness of the two 
 curves representing high school enrollment. There is apparently 
 at present no need of an increased number of high schools in 
 the state, but on the other hand there is a distinct need of 
 
 improvement in their quality as evidenced by the size of the 
 teaching force in the larger part of them. A direct state subsidy 
 to the poorer districts supporting these schools, the same to be 
 graduated in an inverse relation to their wealth would, if a 
 certain standard of efficiency were set, doubtless improve the 
 status of secondary education in the state very much." 
 
 "Almost the entire area of the state has from 45 to 90 inhabitants per 
 square mile. The foreign born and negro population taken together does 
 not exceed 14 per cent, of the whole, and this element is largely confined 
 to the cities. About 27 per cent, of the people are engaged in agriculture, 
 28 per cent, in manufacture, 2 per cent, in mining, and 18 per cent, in 
 trade and transportation. 
 
176 Some High School Statistics and Their Probable Meaning 
 
 Indiana: The number of high schools in Indiana has in- 
 creased 206, or 66 per cent, during the nine years. This repre- 
 sents a very large relative growth and also a great spread of 
 secondary educational opportunities in the state. At the same 
 time the relative quality of these schools has apparently decreased, 
 the increase in the average number of teachers to the school 
 being but 4.5 per cent., while the relative number of one teacher 
 high schools has increased from 40 to 54 per cent.- of the whole, 
 and the relative number of two teacher high schools has increased 
 from 44 to 56 per cent, of the remainder. 
 
 The increase in the approximate census, 5-18, has been, for 
 cities 37 per cent., and for rural communities 6.3 per cent. The 
 absolute number of secondary pupils enrolled in all types of 
 schools has increased 65 per cent. ; and the absolute increase 
 of high school pupils has been, for cities 49 per cent., and for 
 rural communities 82 per cent. 
 
 The relative increase in the number of secondary pupils in the 
 state has been 48 per cent.; and the relative increase in the 
 enrollment of high school pupils has been, for cities 8.3 per cent., 
 and for rural communities 71 per cent. ; while the relative increase 
 of secondary other than high school pupils has been 27 per cent. 
 
 Turning to the plate of curves representing the status and 
 growth of high schools in this state, we find in 1899 a great 
 deflection of the curve of relative high school enrollment. This 
 is due to a great reported increase in enrollment in these schools 
 for the year. The following year the census reported for cities 
 was unusually large and the high school enrollment had dropped 
 back to its normal number. The curve for total secondary en- 
 rollment in the state also shows these deflections. It is probable 
 that it would not have misrepresented the situation much if the 
 points in question had been ignored in drawing each of these 
 curves. The other deflections of the curves are also largely due 
 to a great increase in the reported enrollment in secondary 
 schools for the year 1905. 
 
 To sum up, there has been a very great extension of secondary 
 educational opportunities in the state, as measured by the spread 
 of rural high schools, but the efficiency in these schools, as meas- 
 ured by the relative number of teachers employed, has decreased. 
 
 As measured by relative enrollment, the status of city high 
 schools was quite high in 1897, but the relative increase during 
 
Some High School Statistics and Their Probable Meaning 177 
 
 the period has been insignificant; while by the same measure the 
 status of rural high schools was rather low in 1897, but there 
 has been a substantial relative increase since that time. 
 
 As in Ohio there is probably little need at the present time 
 to increase the number of rural high schools in the state. The 
 main problem now would appear to be their refinement, and this 
 
 9 
 8 
 
 7 
 6 
 
 5 
 
 /I 
 
 
 
 
 -^ PlateXiy-INDIANA , ; 
 
 OnOVKincfno.of nigh and jca>ndi;rv j<hDoi 
 pupils To wth '00 of ceruos-jto »8 
 
 
 
 
 
 
 no.rumi.hi6h:6(;hool5.- 
 
 
 
 
 
 
 
 
 *..*... -TOTAL sec. pypi^s 
 
 
 
 
 
 
 
 / 
 
 s. 
 
 
 
 
 
 / 
 
 / 
 / 
 
 \ ■ 
 
 \ 
 \ 
 
 \ 
 
 ,^^ 
 
 ^^.-»^ 
 ^ 
 
 897-3f6- 
 
 — — «> 
 
 
 — 
 
 
 
 
 
 
 
 
 
 **., 
 
 
 .,-:::. 
 
 *^ 
 
 ,*.•' 
 
 
 
 
 
 
 3 
 2 
 
 1 
 
 
 
 
 
 
 
 ^ 
 
 
 
 
 
 ' 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 ^ 
 
 "^^ 
 
 ■■•••^BS 
 
 ■^•» " ■■ 
 
 
 
 
 
 
 
 
 — 
 
 .^" ' 
 
 
 1897 9 
 
 3 99 
 
 D 
 
 02 03 04 05 1 
 
 can only be brought about by increasing their financial resources, 
 hence the necessity for state aid to the poorer of them.^' 
 
 "About 25 per cent, of the area of Indiana has from 18 to 45 inhabitants 
 per square mile, and 75 per cent, from 45 to 90. This population is almost 
 as dense and evenly distributed as that of Ohio. The foreign born and 
 negro population taken together do not much exceed 8 per cent. This 
 element is to be found largely in or about the cities of the state. Nearly 
 38 per cent, of the people are engaged in agriculture, 23 per cent, in manu- 
 facture, and IS per cent, in trade and transportation. 
 
1^8 Some High School Statistics and Their Probable Meaning 
 
 Illinois: The number of rural high schools in this state has 
 increased in the nine years from 283 to 371, or 31 per cent. The 
 spread of these schools is measured, however, by the absolute 
 increase in numbers which was 88. The average number of 
 teachers to the school has increased from 2.6 to 3.1, or 19 per 
 cent. ; and the relative number of one teacher high schools has 
 increased from 20 to 21 per cent, of the whole, and the relative 
 number of two teacher high schools has decreased from 44 to 
 36 per cent, of the remainder. 
 
 '' .pMeXVrJLLlNOIS- -,', 
 
 Showlnr no. cf high and saani^y ■. 
 >Oi»(J p<lf>i\i.toM<.li 100 stttnsiis-SnM 
 
 NO.RURAL HI&H SCHOOLS 
 
 f906-J7l 
 
 \ 
 
 -J^ 
 
 
 im-2f.i 
 
 -WRURALH.S. 
 -IHCITY HS 
 
 -TOTjiL 6Et^PU?lLS 
 -INifHOOtiNOT H.5. 
 
 1897 98 99 00 01 OZ 03 04 05 
 
 The statistics of census, and of secondary and high school en- 
 rollment seem, for some unknown reason, to be unreliable for 
 the year 1897, so we shall not use them in measuring the 
 development of high school enrollment in the state, but begin 
 with the year 1898, thus using but the eight year period. 
 
 The increase in census, for the eight year period, was, for 
 cities .7 per cent., and for rural communities 8 per cent. The 
 absolute increase in the number of secondary pupils enrolled in 
 all types of schools was 36 per cent.; and the absolute increase 
 in the number of high school pupils was, for cities 47 per cent., 
 and for rural communities 42 per cent. 
 
Some High School Statistics and Their Probable Meaning lyg 
 
 The relative increase in the total number of secondary pupils 
 in the state was 30 per cent.; and the relative increase in the 
 number of high school pupils was, for cities 46 per cent., and 
 for rural communities 31 per cent.; while there was no relative 
 increase or decrease in the number of pupils in schools other 
 than high schools. 
 
 As will be seen by the above figures and the accompanying 
 plate representing high school development, the relative status 
 of high and other secondary schools in the state was very low 
 at the beginning of the period, and there has been but a compara- 
 tively slight improvement up to the present time. The relative 
 enrollment in city high schools is particularly low. This, it is 
 to be presumed, is on account of the fact that the city of Chicago 
 is included. It is true that there has been a considerable increase 
 in the number of rural high schools in the state, but these are 
 evidently not very well attended. There has also been some 
 improvement in the quality of instruction given in these schools, 
 but this improvement has been slight when it is considered in 
 connection with the relatively small number of high schools 
 added to the list. At the present rate of increase it will take the 
 rural high schools of the state eleven years to reach the present 
 status of those of Indiana, and 17 years to reach the present 
 status of those of Ohio.^* 
 
 Iowa : The number of rural high schools has increased in this 
 state from 302 to 330, or 9 per cent. The absolute increase for 
 the nine years was 28. During the same period the average 
 number of teachers employed to the school has increased from 
 2.7 to 3.3, or 22 per cent., while the relative number of one 
 teacher high schools has decreased from 22 to 14 per cent, of the 
 whole, and the relative number of two teacher high schools has 
 decreased from 40 to 31 per cent, of the remainder. 
 
 There has been an increase of 18 per cent, in the census, for 
 cities, and a decrease of 4.5 per cent, for rural communities. 
 
 i*About 55 per cent, of the area of Illinois has a population of from 
 18 to 45 inhabitants per square mile, and about 45 per cent, has from 45 to 
 90 per square mile. The foreign born and colored population combined 
 does not exceed 22 per cent, of the whole, and this element is largely con- 
 fined to the cities, particularly Chicago. About 26 per cent, of the people 
 of the state are employed in agriculture, 25 per cent, in manufacture, 2 per 
 cent, in mining, and 22 per cent, in trade and transportation. 
 
i8o Some High School Statistics and Their Probable Meaning 
 
 The absolute number of secondary pupils enrolled in all types 
 of schools has increased 24 per cent. ; and the absolute increase 
 in the enrollment of high school pupils has been, for cities 43 
 per cent., and for rural communities 25 per cent. 
 
 The relative increase in the total number of secondary pupils 
 in the state has been 24 per cent. ; and the relative increase in 
 the number of high school pupils has been, for cities 21 per 
 
 8 
 7 
 6 
 
 5 
 4 
 3 
 
 2 
 1 
 
 
 
 
 pjfliexvi-iowA,. 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 -^- 
 
 ^-. 
 
 --*^ 
 
 --— "" 
 
 "-^ 
 
 .-" 
 
 
 
 A 
 
 
 
 
 
 
 
 
 
 ..-••• 
 
 '* 
 
 
 
 
 
 
 
 
 __ 
 
 — 
 
 
 
 I9< 
 
 ft -130— ■ 
 
 NO. RURAL HKjH schools 
 
 
 
 
 
 AIH.S. 
 YH.S. 
 
 
 
 
 
 
 
 
 
 IB9I-3M 
 
 
 
 
 TOTAL SECPUPILS 
 
 — INMHOOLJHOIttS. 
 
 
 
 
 
 
 __ 
 
 1 
 
 
 
 
 
 
 
 
 
 J897 98 m 
 
 3 01 02 03 04 05 
 
 cent., and for rural communities 25 per cent. ; while there has 
 been no perceptible increase in the relative number of secondary 
 other than high school pupils. 
 
 It will appear from the above and from the accompanying 
 plate of curves for this state that the status of secondary educa- 
 tion in the state is rather high, but that the relative increase of 
 status as measured by the addition of high schools and enrollment 
 has not been very great. On the other hand there has been a 
 considerable increase in efficiency as measured by the number 
 of teachers employed in rural high schools. Taking into consid- 
 eration the composition of the population and its distribution, the 
 
Some High School Statistics and Their Probable Meaning i8i 
 
 wealth, the great national wave of public sentiment, and the 
 original status of rural high schools in the state, it would seem 
 that a greater relative increase in their number and enrollment 
 should have occurred. The great difificulty in this, as in many 
 others of the Middle Western states, is the relative distribution 
 of wealth and population, with the accompanying problem of 
 support and transportation. A much greater development 
 occurred in these schools the preceding six years. ^^ 
 
 Missouri : The number of rural high schools in this state 
 has increased during the nine years from 172 to 332, or 93 per 
 cent. The actual spread of such high schools was the absolute 
 increase in numbers or 160. The average number of teachers 
 to the school has decreased from 2.5 to 2.2, or 12 per cent. The 
 relative number of one teacher rural high schools has increased 
 from 27 to 42 per cent, of the whole, and the relative number 
 of two teacher schools has decreased from 53 to 42 per cent, of 
 the remainder. 
 
 The number of census children has increased 18 per cent, in 
 cities, and decreased 0.3 per cent, in rural communities. The 
 absolute number of secondary pupils in the state has increased 
 42 per cent. ; the increase in the absolute number ol high sch )ol 
 pupils has been, for cities 74 per cent., and for rural comriu- 
 nities 83 per cent. 
 
 The relative increase in the number of secondary pupils en- 
 rolled in all schools has been 36 per cent. ; and the relative 
 increase in the enrollment in high schools has been, for cities 47 
 per cent., and for rural communities 83 per cent.; while there 
 has been a relative decrease of 22 per cent, in the number of 
 secondary pupils other than high school pupils. 
 
 The relative increase in secondary school enrollment for the 
 preceding five years was just twice as great, being about 8 per 
 cent, per year. 
 
 The relative status of secondary education in this state is 
 certainly exceedingly low. The curve for relative enrollment 
 
 "No part of Iowa has a population of less than 18 inhabitants per square 
 mile. Eliminating a few city areas the number of inhabitants varies from 
 18 to 45 individuals per square mile. The foreign born and negro popula- 
 tion taken together does not reach 15 per cent, of the whole. This element 
 is confined largely to the northern half of the state. About 47 per cent, 
 of the people are engaged in agriculture, 14 per cent, in manufacture, 2 per 
 cent, in mining, and 16 per cent, in trade and transportation. 
 
1 82 Some High School Statistics and Their Probable Meaning 
 
 in secondary schools, as suggested elsewhere, showed a much 
 greater inclination for the preceding five years ; from 1897 to 
 1902 it shows but a very slight inclination from the horizontal, 
 and then rises more rapidly for the remainder of the period. 
 The curve of relative high school enrollment in cities shows an 
 actual decline for the first five years and then rises slightly for 
 the remaining four years. The curve of relative high school 
 enrollment in rural communities shows a very regular rise for 
 the whole period, and the curve of relative enrollment for schools 
 
 Plate XVIPMIS^Ur! 
 
 Showing no, flf hlQI 
 
 pupils tp etch loo df 
 
 I I ' 
 
 h ^ni secondary school 
 
 <:ei)Auj.-.» CO 1^ 
 
 <0.gaRALHI6H3CH00lS ,ggg .^^^ 
 
 1897 98 
 
 ....a. TOTAL SEC.PUPItS 
 — ~^-IN iCHOOLS HOT H.p'' 
 
 HW-CITY H.S.- 
 
 04 05 
 
 other than high schools shows a slight decline. The number of 
 high schools has increased very rapidly, but their relative effi- 
 ciency has apparently declined. Taking all these facts into con- 
 sideration and the added fact that the present status is very 
 low, it would seem that the rural high schools of the state are 
 yet in the first stage of evolution, namely, that of increasing the 
 gross number of schools, with an increasing tendency to pass 
 into the second stage or that of increasing the relative en- 
 rollment.^' 
 
 ""Outside of the regions of Kansas City and St. Louis, practically the 
 total area of Missouri has a population of from 18 to 45 inhabitants per 
 square mile. The foreign born and negro population of the state taken 
 
Some High School Statistics and Their Probable Meaning 183 
 
 Texas: The absolute increase in the number of rural high 
 schools was for the nine year period 119. These schools in- 
 creased from 166 to 285, or 71 per cent. While the average 
 number of teachers per school increased from 2.5 to 2.9 the 
 first year, it decreased the next year to 2.2 where it remained 
 until 1904, where there was an increase of one teacher per year. 
 The average number of teachers seems, then, to have decreased 
 4 per cent, for the period. The relative number of one teacher 
 
 high schools has increased from 18 to 30 per cent, of the whole, 
 and the relative number of two teacher high schools has increased 
 from 41 to 49 per cent, of the remainder. 
 
 The census figures for both cities and rural communities seem 
 to be somewhat unreliable, so that the following statement cannot 
 be taken without modification. 
 
 The increase in census was, for cities 24 per cent., and for 
 rural communities 11 per cent. The absolute increase in enroll- 
 
 together does not much exceed 12 per cent. The most of this element 
 is to be found in and about the cities. About 41 per cent, of the 
 people are engaged in agriculture, 16 per cent, in manufacture, 2 per cent, 
 in mining, and 18 per cent, in trade and transportation. 
 
184 Some High School Statistics and Their Probable Meaning 
 
 ment in secondary schools was 64 per cent.; and the absolute 
 increase in the number of high school pupils was, for cities 153 
 per cent., and for rural communities 87 per cent. 
 
 The relative increase in the number of secondary pupils was 
 45 per cent.; and the relative increase in the number of high 
 school pupils was, for cities 104 per cent., and for rural commu- 
 nities 67 per cent. ; while the relative decrease in the number 
 of secondary, other than high school pupils, was 12 per cent. 
 
 Little may be said about the condition of secondary education 
 in this state, except that it is in the first stages of evolution, as is 
 evidenced by the fact that the relative high school enrollment in 
 cities has increased very greatly, while such increase in rural 
 high schools has been very much slower, though the original 
 status of these schools was at the beginning of the period only 
 about 36 per cent, as high as that of the city schools.^' 
 
 Kansas: The number of rural high schools in this state has 
 increased from 164 to 216, the absolute increase being 52 and 
 the relative increase being 31 per cent. The average number 
 of teachers employed in these schools has decreased from 2.4 
 to 2.2, or 8.3 per cent., while the relative number of one teacher 
 high schools has increased from 26 to 42 per cent, of the whole, 
 and the relative number of two teacher high schools has de- 
 creased from 54 to 51 per cent, of the remainder. 
 
 The census has increased 41 per cent, in cities, and 9.9 per 
 cent, in rural communities. The absolute number of secondary 
 pupils enrolled in all types of schools has increased 57 per cent. ; 
 and the absolute increase in the number of high school pupils 
 has been, for cities 139 per cent., and for rural communities 
 57 per cent. 
 
 The relative increase in the number of secondary pupils in 
 the state for the period has been 38 per cent. ; and the relative 
 increase in the number of pupils enrolled in high schools has 
 
 ''The western half of Texas has a population of less than 2 inhabitants 
 per square mile, while about one-fourth of the total area has a population 
 of from 2 to 18 inhabitants per square mile, and the remaining fourth, 
 excluding two small areas which are more densely settled, has a population of 
 from 18 to 45 inhabitants per square mile. Twenty per cent, of the total 
 population is colored, and a little more than 6 per cent, is of foreign birth. 
 Sixty-two per cent of the people are engaged in agriculture, 8 per cent, in 
 manufacture, 'and 11 per cent, in trade and transportation. 
 
Some High School Statistics and Their Probable Meaning 185 
 
 been, for cities 69 per cent., and for rural communities 43 per 
 cent. ; while the relative number of pupils, other than high school 
 has decreased 5 per cent. 
 
 As explained elsewhere in this chapter the great deflection in 
 the curve of relative high school enrollment in cities for the year 
 1899 is due to a probable error in the census for that year. 
 Figures are given in a note, connected with the statistical table 
 for the state, showing that the relative increase in the number 
 
 , -PlateXJX- KANSAS- 
 
 Pupils'totith 100 o1-cei)iu5— Stii I& 
 
 -vl 
 
 / 
 
 .^ 
 
 y 
 
 y 
 
 / 
 
 '• 
 
 ...I I — m SCHOOLS NJBT H.S. 
 
 mg7- 
 
 164 ■ 
 
 I8g7 38 99 00 
 
 02 
 
 03 04 05 
 
 of secondary pupils was for the preceding six years much more 
 rapid. It appears from these figures that the relative increase 
 for the last three of the preceding years was much greater than 
 for the nine years under consideration, the increase for the three 
 years being 47 per cent., and for the nine years 38 per cent. 
 This rapid increase continued with a gradual falling off, up to 
 the year 1901, when it became much slower. It appears from 
 the accompanying curves that both the rural and city high schools 
 contributed to this period of comparatively rapid increase. Taken 
 
1 86 Some High School Statistics and Their Probable Meaning 
 
 as a whole the curve of relative increase of enrollment in cities 
 shows a remarkable development for the period. The condition 
 of high schools outside of such cities is, however, such as to 
 bring the general status of secondary schools in the state down to 
 rather a relatively low stage. In 1906 the status of secondary 
 education in cities was 2.16 times as high as in rural commu- 
 nities. The growth in the number of high schools shows a ten- 
 dency to increase the spread of secondary education in the state ; 
 but the slow increase in enrollment, and the decrease in relative 
 efficiency in the rural high schools show that the movement has 
 not as yet fully reached the second stage of development.^' 
 
 Nebraska : The absolute increase in the number of rural high 
 schools in this state was for the nine years 151. The relative 
 increase calculated upon 214, the real number of such schools, 
 was 70 per cent.^° The average number of teachers to the rural 
 high school decreased from 1.9 to 1.8, or 5 per cent. At the 
 same time the relative number of one teacher high schools in- 
 creased from 42 to 57 per cent, of the whole, and the relative 
 number of two teacher high schools decreased from 60 to 48 
 per cent, of the remainder, while the relative number of one and 
 two teacher high schools taken together remained the same, 
 yy per cent. 
 
 The census for cities decreased 8 per cent, and that for rural 
 communities 4.9 per cent. The absolute increase in the number 
 of secondary pupils enrolled in all types of schools was 63 per 
 cent. ; and the absolute increase in the number of high school 
 pupils was, for cities 51 per cent., and for rural communities 
 48 per cent. 
 
 The relative increase in the enrollment of secondary pupils in 
 the state was 73 per cent. ; and the relative increase in the num- 
 ber of high school pupils was, for cities 65 per cent., and for 
 
 ""About 30 per cent, of the area of Kansas has less than 6 inhabitants 
 per square mile, about 26 per cent, from 6 to 18, about 38 per cent, from 
 18 to 45, and about 6 per cent, more than 45. But a little more than 12 
 per cent, of the population is of foreign birth or colored. This element 
 is well distributed through th€ native white population. Fifty-three per 
 cent, of the people are engaged in agriculture, 12 per cent, in manufacture, 
 2 per cent, in mining, and 14 per cent, in trade and transportation. 
 
 "The number listed in the statistical table for 1897 is 210, but at least 
 four of the city high schools reverted to the rural column before the end 
 of the period. 
 
Some High School Statistics and Their Probable Meaning 187 
 
 rural communities 56 per cent. ; while the relative increase in the 
 number of secondary, other than high school pupils, was 161 per 
 cent. 
 
 A glance at the plate of curves and the statistical table for this 
 state will disclose a number of irregularities. In 1900, seven of 
 the schools previously listed as city schools passed over into the 
 rural high school column. This was due to the fact that the 
 cities maintaining them did not have the requisite population to 
 
 8 
 
 7 
 6 
 5 
 4 
 3 
 2 
 1 
 
 
 
 
 )lateXX-MFRb^*^l^fl L 
 
 
 
 1 
 
 
 
 [???,"<?;? 
 
 ' hl;h and .Sftonitery ithool 
 I ITO (>tt«n3us--E In 16 
 
 -' 
 
 '-'<^ 
 
 
 
 
 
 
 
 
 
 ^^^ 
 
 ^.. 
 
 -—-- 
 
 — — . 
 
 
 
 ^••* 
 
 
 
 / 
 
 
 
 
 .-•' 
 
 
 ^^ 
 
 
 "" 
 
 
 
 
 
 n 
 
 ::^ 
 
 ^ 
 
 
 
 
 ^5CH00 
 
 ■s- 
 
 
 JALHIG 
 
 
 ^^ 
 
 f 
 
 t906-3( 
 
 NU.KU 
 
 . ■ "l 
 
 1 1 
 
 
 ^^ 
 
 
 1 1 
 
 
 
 
 
 
 
 
 
 
 
 1 
 
 — — 
 
 
 
 
 
 .—.IN CITY H.5. 
 
 
 
 
 
 .....TOT 
 -;_IN< 
 
 AL sec..« 
 
 CH0016 > 
 
 UPILS 
 
 or H.s. 
 
 
 
 ^■' 
 
 **^^ 
 
 .^^ 
 
 ^•^^' 
 
 
 .-—-"' 
 
 ^""^ 
 
 ^ 
 
 — -•—■ 
 
 <"' 
 
 
 
 1897 98 99 
 
 01 02 03 04 05 1 
 
 entitle them to remain in the class. This of course accounts for 
 the great falling off of city high school enrollment for the year, 
 and the consequent increase of that of rural high schools. The 
 low status of relative enrollment in city high schools for 1897 
 is due to the reported enrollment in the schools for that year. 
 The sudden dropping of the curve of relative enrollment for 
 these schools in 1906 is due to a large reported increase in the 
 census in cities, which in turn caused a large decrease in the census 
 for rural districts. The drop in all of the curves for the year 
 1899 is also due to a large increase in reported census. From the 
 
1 88 Some High School Statistics and Their Probable Meaning 
 
 general appearance of the statistical table it seems probable that 
 all these fluctuations are due to errors in these statistics. Assum- 
 ing that this is the case, the curves could be corrected by ignoring 
 these questionable points and giving the lines the general slopes 
 as defined by the remaining portions. 
 
 If the above corrections were made, it would be seen that the 
 slopes of the two curves, representing relative high school enroll- 
 ment, would be much the same, thus showing a much greater 
 relative increase in the enrollment in rural districts. 
 
 To sum up, the spread of rural high schools in this state, as 
 measured by absolute numbers, has been very great ; their relative 
 efficiency, as measured by the number of teachers employed, has 
 slightly decreased, and their relative enrollment has increased 
 very greatly. As early as 1895 ^" ^^t was passed which made 
 all district high schools located in any given county free to the 
 properly qualified pupils resident in that county. The tuition was 
 to be provided for by the county boards of education. This act 
 and its later modifications have no doubt influenced very much 
 the development of rural high schools in the state. The general 
 slope of the curve representing total secondary school enrollment 
 has practically remained the same since 1891. In view then, of 
 the fact that the state is very young in its development, it appears 
 that the present status of secondary education is relatively quite 
 high, and that the accumulated momentum in its development 
 will probably carry this status much higher in the years to come.^° 
 
 Rhode Island : A glance at the statistical table for this state 
 will show that the figures for rural communities are such as to 
 bar the possibility of generalizing upon them. 
 
 Taken as a whole there has been in the nine years a remarkable 
 development of secondary education in the twenty states under 
 consideration. As may be seen by a reference to the table of 
 summaries to follow, 2 of them have increased their relative 
 enrollment of secondary pupils in all types of schools more than 
 
 ^TuUy half of the area of Nebraska has less than 6 inhabitants per 
 square mile. About one-fourth has from 6 to 18, and the remainder 45 
 to 90. A little more than 17 per cent, of the population is foreign born 
 or colored. This element is well distributed through the native population. 
 Fifty per cent, of the people are engaged in agriculture, 13 per cent, in 
 manufacture, and 16 per cent, in trade and transportation. 
 
Some High School Statistics and Their Probable Meaning 189 
 
 100 per cent., 3 more than 50 per cent., 6 more than 35 per cent., 
 and 5 more than 30 per cent. ; while the average relative increase 
 in enrollment for the 20 has been more than 42 per cent. One 
 state, Texas, has increased its relative enrollment of high school 
 pupils in cities more than 104 per cent., 7 others more than 40 
 per cent., 4 more than 35 per cent., 3 more than 25 per cent., and 
 one has decreased its relative enrollment 9 per cent. ; while the 
 average relative increase in enrollment in these schools for the 
 20 states has been 46 per cent. Four of them have increased 
 their relative enrollments of high school pupils in rural com- 
 munities more than 100 per cent., 8 more than 50 per cent., 2 
 more than 35 per cent., and 3 more than 25 per cent. ; while the 
 average relative increase in enrollment in these schools for the 
 20 states has been 65 per cent. Eight of the twenty states have 
 increased their relative enrollments of secondary pupils in schools 
 other than high schools, and the same number has decreased 
 such enrollments. 
 
 One of these states, Washington, has increased the number of 
 its rural high schools more than 206 per cent., 6 of them more 
 than 50 per cent., 5 more than 35 per cent., and 3 more than 31 
 per cent. ; while the average increase in the number of such 
 schools in the 20 states has been 50 per cent. 
 
 As to the teaching staff, California has increased the average 
 number of teachers employed to the school, in rural high schools, 
 more than 71 per cent. ; 3 other states have increased their aver- 
 ages more than 35 per cent., 6 more than 22 per cent., 2 more 
 than ID per cent., 4 less than 10 per cent., and 4 have decreased 
 their averages, ranging from 4 to 12 per cent. ; while the aver- 
 age increase for the 20 states has been more than 19 per cent. 
 Five of eleven states have decreased their relative proportions 
 of one teacher high schools more than 75 per cent., 3 more than 
 25 per cent., and 3 less than 25 per cent. ; while 4 of the remain- 
 ing nine have increased their relative proportions of one teacher 
 high schools more than 50 per cent., 2 more than 35 per cent., i 
 more than 26 per cent., and 2 less than 12 per cent. The average 
 decrease in the relative number of one teacher high schools was 
 for the II states 52 per cent., and the average increase for the 
 remaining 9 states was 38 per cent. ; while the average decrease 
 for the 20 states was a little more than 11 per cent. Two of 
 sixteen states have decreased their relative proportions of two 
 
190 Some High School Statistics and Their Probable Meaning 
 
 teacher high schools more than 86 per cent., 2 more than 50 per 
 <:ent., 4 more than 30 per cent., 4 more than 20 per cent., and 4 
 less than 19 per cent.; while one of the remaining four has in- 
 creased its relative number of two teacher high schools more than 
 60 per cent., one more than 27 per cent., and 2 less than 20 
 per cent. The average decrease in the relative number of two 
 teacher high schools was, for the 16 states 34 per cent., and the 
 average increase for the remaining 4 states was 30 per cent. ; 
 while the average decrease for the 20 states was a little more 
 than 33 per cent. 
 
 The influence of legislation upon secondary education in the 
 "various states, where there appeared to be any such definite in- 
 rfluence, was pointed out in the discussions of the statistics and 
 ■curves for these states. It remains then only to take up and 
 compare the relative development of secondary education in such 
 states as directly aid high schools with that of those which give 
 no such aid. It is to be admitted that such a comparison is very 
 difficult, and its results may be very unsatisfactory, because the 
 many varying factors, the degrees in which they may exist, and 
 their complicated combinations may, and in fact do, render any 
 such comparison extremely unreliable, particularly, if it is carried 
 out in any great detail. Again the question of cause and effect 
 must also enter to vitiate to some degree any too definite conclu- 
 sions based upon the result of such a comparison. To be more 
 specific, the question may arise as to whether both laws and in- 
 creased status in development may not be due to the other and 
 more fundamental phenomenon, namely, an awakened and in- 
 creasing social consciousness directed toward a higher educational 
 development. It would seem most probable, however, that while 
 the creation of favorable legislation does rest upon such a phe- 
 nomenon, the laws themselves react to increase it, and further 
 make possible such a distribution of high schools as will admit 
 an increased number to attendance upon them. Bearing these 
 things in mind, the aim will be first to present only such facts 
 as may appear from an analysis of the table containing the sum- 
 maries derived from the preceding statistical presentation for 
 the various states. 
 
 The first comparison will be between the six states pro- 
 viding state subsidies to high schools and those states which give 
 
Some High School Statistics and Their Probable Meaning 195 
 
 X 
 
 n 
 < 
 
 10 
 
 UJ ftO M 
 
 O 3 o I 
 
 ^, P. " 10 
 
 Zs o « 
 
 ^ s o 7 
 
 S u V C 
 ►2 "" n a> 
 
 ■S S-c 
 
 ■3SB9J03P JO 
 1U93 J3J 
 
 ■3SB3J0UI JO 
 
 ^uao J3({ 
 
 •iegi ui 
 
 M-l 
 
 °feJ2 
 
 O t-t u 
 
 sell 
 
 
 E . 
 
 9> S u u 
 
 o 
 
 3.3 g 
 
 (U 
 
 r/i 
 
 <! 
 
 W 
 
 S 
 
 H 
 
 •? 
 
 < 
 
 
 s 
 
 ■J^ 
 
 OLx 
 
 < H 
 
 
 
 ■?■ 
 
 fe 
 
 
 H 
 
 H 
 
 ■< 
 
 
 H 
 
 
 M 
 
 
 3SBdJ3U1 JO 
 )U93 13\} 
 
 •ibgi uj 
 
 w ■^■O f^ M r* ■^O I 
 
 i-^tfrOWl^^OW *M ► 
 
 'SSC3J3UT JO 
 
 )U30 la'ti 
 
 
 •idgi UI 
 
 ^ "t lOO « lOr^WlN ^POWi ^"O VI N M 1« ^ 
 
 •SSBaJOUI JO 
 )U33 J3^ 
 
 •iegl UI 
 
 • ei ^N rf) m ''i f*) f 
 
 I w fO w '-' <*! H 
 
 •aSB9J03p JO 
 )U30 J9 j 
 
 ■3SB3JDni JO 
 
 i^nso J9c[ 
 
 •9061 UI 
 
 •i6gi UI 
 
 as^ajoap jo 
 :ja90 J9(£ 
 
 SSeSJODI JO 
 
 :^adD J3(i 
 
 •9061 UI 
 
 •idgi UI 
 
 'ds^djoui 
 JO ^nao J3(i 
 
 •9061 UI 
 
 •i6gi UI 
 
 ■ssBajoui JO 
 
 
 ■ibgi 
 jaquinjsi 
 
 10 c a> 
 (U d*^ 
 
 I2I 
 
 'o ^ tio 
 " o " S 
 
 2^ 3 
 
 M 4A U 
 
 
 QOOO 
 
 
 t »^ « moo M >o f^ w Tf I 
 
 0000 
 
 
 iMHOONMnoo O-so O O- 
 e* xnir, O tT) >^ 000 w N>0 m 
 
 M « W M hH H 
 
 00wiH0««00^Oi*'-<O^'Hr».(*)'OWN'O 
 00 r~0 ro\0 "*^^^iH (*)wvo to moo to O ^-O 
 
 
 
 i-o-o'tt 
 
 I 
 
 O +J 
 
 ',S 
 
 8 
 
 
 
 
 
 r, 
 
 ^ 
 
 0^ 
 
 
 £ 
 
 5 
 
 <5 
 
 c 
 
 
 
 
 
 
 
 
 (-0 
 
192 Some High School Statistics and Their Probable Meaning 
 
 no state aid to such schools either by direct subsidy or by reim- 
 bursing local communities for tuition. These states it will be 
 noted, contain all degrees of social and economic evolution result- 
 ing from the fact that they represent the youngest as well as 
 the oldest of the group. Taken as a whole, they represent a wider 
 and more irregular distribution of population and wealth than 
 the average for the other and larger group. It will also be well 
 to bear in mind the fact that there are but six of these states, 
 while there are eleven in the other group. 
 
 It appears then, that while one of the six, Massachusetts, did 
 not increase the number of its rural hjgh schools, 3 others of the 
 six increased their relative numbers of such schools more than 
 80 per cent., while but one of the 1 1 in the other group increased 
 its numbers more than 80 per cent., and but 2 more than 70 per 
 cent. The average increase for the first group was 68 per cent., 
 while that for the second group was 48 per cent. 
 
 Five of the six states increased the average number of teachers 
 employed to the school more than 34 per cent., while but one of 
 the larger group exceeded this per cent. The average increase 
 for the six was 38 per cent., and for the eleven but 6.5 per cent. 
 The average number of teachers to the school in 1897 was, for 
 the first group 2.4, and for the second group 2.5. Each of the 
 six states of the first group decreased the relative number of one 
 teacher high schools, while but 3 of the 11 in the second group 
 did so. The average decrease for the first group was 63 per cent., 
 and for the 3 states 41 per cent., while the average increase for 
 the II states was 15 per cent., thus making a diflference of 78 per 
 cent, in favor of the smaller group. The average relative pro- 
 portion of one teacher high schools in 1897 was, for the first 
 group .25 and for the second group .27. Each of the states of 
 the first group also decreased the relative number of two teacher 
 high schools, while but 7 of the second group did so. The aver- 
 age decrease for the 6 states was 53 per cent., and for the 7 
 states 23 per cent., while the average decrease for the entire 
 second group was 2 per cent., thus making a difference of 51 per 
 cent, in favor of the first group. The average relative propor- 
 tion of two teacher high schools in 1897 was, for the first group 
 .52 and for the second group .44. 
 
 As to the enrollment of secondary pupils in all types of schools, 
 2 of the six states increased their relative enrollments more than 
 
Some High School Statistics and Their Probable Meaning 193 
 
 100 per cent., while none of the other group reached this and 
 but one reached 70 per cent. .The average relative increase of 
 enrollment for' the first group was 57 per cent., and for the 
 second group but 39 per cent. This becomes more significant 
 when we consider the fact that the average status of enrollment 
 of the first group at the beginning of the period was 4.44 indi- 
 viduals to each 100 of census, 5-18, while that of the second 
 group was but 3.68 individuals to each 100 of census. 
 
 Three of the 6 states increased their relative enrollments in 
 city high schools more than 50 per cent., while 5 of the 11 in- 
 creased theirs more than 50 per cent. The average increase in 
 relative enrollment in these schools was, for the first group 52 
 per cent., and for the second group 49 per cent., while the aver- 
 age number of pupils enrolled to each 100 of census, 5-18, was 
 for the first group 4.81, and for the second group 4.13. 
 
 The greatest difference appears, however, when the relative 
 enrollments in rural high schools in the two groups are compared. 
 Two of the six states increased their relative enrollments in rural 
 high schools more than 152 per cent., and 2 others more than 
 100 per cent., while but 2 in the other group increased their rela- 
 tive enrollments more than 73 per cent., and but 2 others more 
 than 67 per cent. The average increase in relative enrollment 
 in these schools exceeded for the first group 100 per cent., and 
 for the second group but 49 per cent., while the average number 
 of pupils enrolled to each 100 of census at the beginning of the 
 period was, for the first group 2.85, and for the second group 2.49. 
 Two of the states in the first group, Massachusetts and Maine, 
 compel such towns as do not maintain high schools to pay the 
 tuitions of all of their high school pupils in secondary schools 
 located within or without such towns. Provision is made for 
 the reimbursement by the state of the poorer of such towns. The 
 state high schools in Minnesota are free to any and all qualified 
 secondary pupils from districts not maintaining high schools 
 of their own. In California and Washington the high schools are 
 also practically open to all comers. In Wisconsin compulsory 
 free tuition is provided for by all communities not maintaining 
 high schools. 
 
 Comparing the two states in which compulsory free tuition 
 with certain reimbursements is provided, with the eleven which 
 
194 Some High School Statistics and Their Probable Meaning 
 
 do not provide such reimbursement,-' it appears that the 
 average relative increase in the number of high schools was, 
 for the two states 12 per cent., and for the eleven states 48 per 
 cent. ; that the average increase in the average number of 
 teachers employed to the school was, for the two states 27 per 
 cent, upon 2.4 in 1897, for the eleven states 6.5 per cent upon 2.5 
 in 1897; that the decrease in the average relative proportion of 
 one teacher high schools was for the two states 34 per cent., based 
 upon an average relative proportion of .31 in 1897, and for the 
 eleven states there was an increase of 15 per cent., based upon 
 an average relative proportion of .27 in 1897, thus producing, 
 a difference of 49 per cent, in favor of the first group; that 
 the decrease in the average relative proportion of two teacher 
 high schools was for the two states 22 per cent., based upon 
 an average relative proportion of .45 in 1897, and for the eleven 
 states 2 per cent, based upon an average relative proportion of 
 .44 in 1897. 
 
 The average relative increase in enrollment of secondary pupils 
 in all types of schools was, for the two states 27 per cent., based 
 upon an original status of an average of 5.40 pupils to each 
 100 of census, and for the eleven states 39 per cent., based upon 
 a status of an average of 3.68 pupils to each 100 of census. The 
 average relative increase in the enrollment in city high schools 
 was for the two states 15 per cent., based upon an original 
 status of an average of 4.51 pupils to each 100 of census, and 
 for the eleven states 49 per cent., based upon a status of 4.13 
 pupils to each 100 of census. The average relative increase of 
 pupils enrolled in rural high schools was, for the two states 57 
 per cent., based upon an original status of 2.79 pupils to each 
 100 of census, and for the eleven states 49 per cent., based upon 
 a status of 2.49 pupils to each 100 of census. 
 
 Since then, the states providing aid to high schools and free 
 tuition to all comers appear, as a group, to have no special advan- 
 tages in the matter of social and economic evolution, social 
 composition, and the distribution of wealth and population. The 
 great difference to be found in the development of secondary 
 education in this group and the other must be due either to the 
 
 "It appears that the reimbursement of tuition did not occur in Vermont 
 until after the period under consideration. 
 
Some High School Statistics and Their Probable Meaning 195 
 
 social attitude or to the laws which have been designed to 
 equalize such educational opportunities. A reference to Plate 
 XXI will disclose the fact that the relative status of education 
 in these two groups at the beginning of the period did not 
 greatly differ, and that there was relatively much less difference 
 in the average status of rural than of city high school enroll- 
 ment. The slight spreading of the lines representing average 
 city high school enrollment is not due to any great difference in 
 relative increase, but to the original difference of status. On the 
 
 ^i^X^t-AVEftAGE RELATIVE INCREASE, 
 
 INThE NUMftfR OF SecOMOARY PDPlUSTOCACH 100 OP 
 6gNi;PS'6T0ip-]N S6VENTEEW STATES 
 
 
 foP"J' 
 
 ^i:^'K^'''"Z'^i^"^''^^ '^ 
 
 A COMPARISON BETWEEN SROUPI, THE 
 
 Six states thai PROVlOE A SU6iiCY,T0 
 fll&H SCHOftLS,/lND &ROaPlI.tHE£LfVfN 
 -STATES THAT PROVIDE NO 3UCH AID-; — 
 
 189? 
 
 7-31 
 5£)7 
 
 6-15 
 5-70 
 511 
 
 3-71 
 
 t906 
 
 other hand the wide divergence of the lines representing average 
 rural high school enrollment is mostly due to a large difference of 
 increase in the average relative enrollment in the two groups. 
 Taking into consideration, then, the facts of the case, which are 
 that the original status did not vary greatly, and that such 
 differences as did appear were doubtless due to the previous 
 favorable legal conditions in these states, that there was but a 
 slight difference in the average increase of enrollment in city 
 high schools, and that the average relative increase in enrollment 
 in rural high schools in the group of subsidy states far exceeded 
 that of the other group, it would seem that the tremendous 
 
196 Some High School Statistics and Their Probable Meaning 
 
 development of rural secondary education in these states is due 
 very largely to the influence of legislation, in a measure equal- 
 izing the economic burdens of such education, and to a consider- 
 able extent directly and indirectly reacting in such a manner as 
 to increase tremendously a favorable public sentiment toward it. 
 The state subsidy plan of aid coupled with compulsory and 
 partially reimbursed free tuition seems, upon the whole, to affect 
 favorably the spread of high schools, and the efficiency of 
 instruction and the enrollment in them. Reimbursed tuition 
 without a state subsidy seems to have little favorable influence 
 upon the spread of rural high schools, if indeed it does not hinder 
 such spread. Compulsory and reimbursed free tuition tends 
 to increase both attendance and enrollment in such schools. It ap- 
 pears that where a large direct state subsidy is paid, the tendency 
 to increase the number of high schools at the expense of their 
 quality is checked by certain standards of efficiency set by the 
 state administrative authorities. Higher standards of efficiency 
 are also set where the state reimburses tuition payments. These 
 facts account for the wide distribution of so-called high schools 
 in a large number of the Central States, with the evident ten- 
 dency toward relative decreased efficiency in them. The great 
 increase in enrollment in rural high schools in these states is 
 due largely to the great spread of such schools. A certain 
 amount of state aid in the form of a state subsidy together with 
 compulsory and reimbursed tuition applied in proper proportions 
 would tend to increase their efficiency tremendously. In short 
 it appears from the above statistical study that direct state aid, 
 when coupled with proper legal requirements, produces efficiency 
 and opportunity, and relatively decreases the spread of high 
 schools of an inferior quality. 
 
CHAPTER XIII 
 
 STATE AID BY GRANTING SUBSIDIES AND BY 
 REIMBURSING TUITIONS 
 
 A DISCUSSION OF THE WORKINGS OF THE LAWS PROVIDED IN AID 
 OF RURAL SECONDARY EDUCATION IN MASSA- 
 CHUSETTS AND CONNECTICUT 
 
 It was the intention to measure the results of the practical 
 workings of all of the different types of legislation which pro- 
 vided state aid to rural secondary education. However, the 
 necessary statistics could not be secured in sufficient detail in 
 any of the states excepting Massachusetts and Connecticut. This 
 chapter will be confined, then, to the presentation, analysis and 
 discussion of certain statistics for secondary education in these 
 states. These figures are presented for the purpose of estab- 
 lishing certain facts relative to, (i) the workings of the direct 
 state subsidy plan of aid in conjunction with that of reimbursed 
 tuition; (2) the reimbursed tuition plan of aid in conjunction 
 with the entire local support of high schools. 
 
 It will be necessary to note at this point that the purpose of 
 this presentation is neither to discuss the merits of the policy 
 of state aid to rural secondary education nor to present the 
 advantages or disadvantages of the two methods of extending 
 such aid, but rather to point out certain failures in practice 
 due to the faulty applications of the general principles involved. 
 Further, the interest here is not in the special problems relating 
 to the subject in the states under discussion, but rather in the 
 general theories as they have worked out in practice in these 
 states. i 
 
 The first of these discussions will concern itself with the con- 
 sideration of the problem of the workings of the direct state 
 subsidy plan of aid in conjunction with that of reimbursed tuition 
 as illustrated by certain statistics relating to rural secondary 
 education in the state of Massachusetts. The main problem will 
 be to arrange the statistics, describe and interpret them in such 
 a manner as to show that the method of providing state aid 
 to secondary education in this state does not work equitably. 
 
igS State Aid by Granting Subsidies 
 
 and thus does not, upon the whole, produce the results that 
 might be obtained by a more equitable distribution of the funds 
 provided for the purpose. 
 
 The act providing state aid for secondary education in the 
 poorer towns is in effect as follows: (i) all towns with more 
 than 500 families must maintain high schools; (2) towns with 
 less than 500 families may maintain high schools, and in case 
 they do, they may receive a bonus of $500 annually from the 
 state; (3) all towns not maintaining high schools of their own 
 must provide free tuition for all of their qualified secondary 
 pupils in attendance upon neighboring high schools; (4) such 
 of these latter towns as have an assessed valuation of less than 
 $750,000 may receive from the state an amount equal to the 
 whole of that expended for such tuition; and such as have an 
 assessed valuation of $750,000 or more may receive one-half the 
 whole amount so expended. It is provided, however, that no 
 town, the valuation of which averages a larger sum for each 
 pupil in average membership in its public schools than the corre- 
 sponding average for the commonwealth, shall receive any 
 moneys from the commonwealth under the provisions of the act. 
 
 A glance at the two pages of statistics presented herewith will 
 be sufficient to convince the reader that the scheme of aiding 
 rural secondary education in Massachusetts does not work with 
 equity in the two classes of poorer towns under consideration; 
 and that as a result of this the present law places the towns 
 supporting high schools of their own at a disadvantage, in so 
 far as state aid is concerned. On the other hand these towns 
 have all of the advantages attendant upon having a high school 
 located within their borders. Some of these advantages are: 
 (i) a local high school will provide a secondary education to 
 a much larger number of the youth of the town;^ (2) such 
 state funds as may be applied to the purpose will remain in 
 the town; (3) pupils will be saved the extra expense of travel, 
 and in some instances of boarding and lodging; (4) the time 
 of pupils before and after school may be utilized with advan- 
 tage by parents; (5) the pupils will be nearer home and more 
 largely under its influence; (6) the existence of a local high 
 school will attract home makers and thus prove of economic 
 
 'Rep't of State Board of Edu., Mass., 1903-4, pp. 222-4. 
 
State Aid by Granting Subsidies 199 
 
 advantage. In addition to all of these, local pride may exert 
 a powerful influence in leading to the establishment and mainte- 
 nance of such schools. It is to be feared, however, that the fact 
 that the state will give, free of expense to the local community, 
 an equal, if not a superior education to all who can manage to 
 provide the transportation, will overbalance all of the above 
 advantages. In this case many of the towns that should be 
 maintaining high schools of their own will continue to require 
 their youth to leave the home town in order to secure educa- 
 tional advantages. 
 
 Taking up in detail the analysis and discussion of these sta- 
 tistics, it will be found that Table I shows that the number of 
 pupils in attendance upon the high schools in the various towns 
 bears but a slight relation to the wealth of such towns; that 
 after subtracting from the current expenses the $500 received 
 from the state, the remaining amounts to be raised by the various 
 towns bear only a slight relation to the assessed valuations; 
 that the per capita cost of secondary education is only slightly 
 less in the poorer towns ; that the state pays only a little more 
 per capita for the education of pupils in the poorer towns; but, 
 that the percentage of per capita cost paid by the state is, upon 
 the whole, considerably larger in these towns. It will be noticed, 
 however, that if each of these towns were compelled to raise 
 all the necessary local funds by taxation, the poorer towns would, 
 in general, be compelled to tax themselves approximately twice 
 as heavily as the richer ones. Some of the funds are, however, 
 raised by tuition fees, but in all probability the richer towns 
 receive more in proportion upon this account than the poorer 
 ones, since they would generally give better educational facili- 
 ties, and since their larger tuition charges would be met by the 
 state. A few of these towns also have endowments which 
 decrease the local rates for this purpose." The towns compos- 
 ing the latter class could not be determined, but there is no more 
 reason for supposing that they belong to the poorer than to the 
 richer class. A reference to the table on page 21, will show 
 that a still greater difference must exist in the rates for the 
 maintenance of the elementary schools in these towns. In view 
 of this latter fact, it will be evident that any given rate for 
 
 'Rep't of State Board of Edu., Mass., 1903-4, pp. 221 . 
 
200 
 
 State Aid by Granting Subsidies 
 
 TABLE I 
 
 Statistics of ths Fortt Massachusetts Towns That Received a Direct 
 Subsidy of $500 Each in 1907 
 
 Towns 
 
 9 o 
 
 V S 
 
 a.9 
 
 ■go 
 
 p to 
 
 B 
 I?" 
 B-» 
 
 o 
 
 o o 
 h'o «i 
 
 §. gg 
 
 2 S oS 
 
 
 
 ".a 
 
 a"" 
 Of 
 
 '£■1 
 
 
 New Salem . . 
 Bemhardston 
 
 Bolton 
 
 Granby 
 
 Ashby 
 
 Huntington. . 
 
 Ashfield 
 
 Orleans 
 
 Mendon 
 
 Chester 
 
 Conway 
 
 Plain ville 
 
 Petersham. . , 
 
 Rutland 
 
 West Boylston 
 
 Millis 
 
 Norwell 
 
 Edgartown. . 
 
 Stowe 
 
 Avon 
 
 Sheffield 
 
 Sandwich .... 
 Littleton .... 
 Shelboume . . 
 Lunenburg. . . 
 West Newbury 
 Wrentham. 
 Ashland. . . 
 
 Essex 
 
 Hadley. . . . 
 Northfield . 
 
 Sudbury 
 
 Wilmington. . . 
 
 Charlton 
 
 Northborough. 
 
 Tisbury 
 
 Shrewsbury. . . 
 Southborough. 
 Medfield. . . 
 Sharon. . . . 
 
 414. 
 
 489, 
 
 4S6, 
 
 490, 
 
 583, 
 
 588, 
 
 599. 
 
 624, 
 
 658. 
 
 663. 
 
 689, 
 
 701, 
 
 717, 
 
 728, 
 
 741. 
 
 827, 
 
 850, 
 
 856. 
 
 909, 
 
 928 
 
 908 
 
 997 
 
 1 ,014 
 
 X ,022 
 
 1,030 
 
 1.041 
 
 I. OSS 
 
 1 ,062 
 
 1. 155 
 
 1,203 
 
 1,232 
 
 1,248 
 
 1,258 
 
 1,344 
 
 1 ,420 
 
 1,42s 
 
 1,515 
 
 1,548 
 
 3,351 
 
 510 
 760 
 3S8 
 641 
 
 oos 
 180 
 32s 
 
 571 
 320 
 538 
 066 
 002 
 636 
 829 
 603 
 555 
 483 
 04s 
 
 112 
 
 598 
 
 , 26s 
 
 225 
 
 127 
 
 914 
 
 ,658 
 
 420 
 
 169 
 
 ,604 
 
 36 
 
 885 
 
 794 
 
 074 
 
 .787 
 
 000 
 
 ,980 
 
 ,787 
 
 409 
 
 704 
 
 050 
 
 295 
 
 31 
 30 
 28 
 26 
 
 31 
 
 79 
 27 
 46 
 31 
 40 
 27 
 30 
 7 
 34 
 31 
 46 
 46 
 3S 
 28 
 57 
 45 
 35 
 39 
 1S4 
 48 
 34 
 28 
 49 
 72 
 43 
 39 
 23 
 57 
 34 
 46 
 36 
 36 
 46 
 32 
 SI 
 
 $1,200.35 
 X , 64s . 80 
 1,236.40 
 I. 441. 63 
 
 I ,480.96 
 3,514.00 
 1,799.10 
 X, 709.91 
 
 1,647.58 
 
 3,412. 78 
 1,333. 39 
 2,415.00 
 1 , 140.66 
 X, 240.00 
 3,392.37 
 I ,410. 
 2,662.84 
 1 , 648 . 64 
 X , 248 . 40 
 I ,663 .00 
 X, 277. 04 
 X ,940.00 
 
 2, 23X . 27 
 5,207.47 
 
 X ,418.51 
 X , 940 . 00 
 
 2,307.58 
 
 3,500.00 
 
 3 , 900 . 00 
 3,4X0.00 
 
 I, 367 .44 
 
 I, 45 X. 08 
 
 3, 03 X .00 
 1,636.46 
 3,005.09 
 
 x,6o5 .00 
 1,778.86 
 3,195.94 
 2 ,066.07 
 2,580.00 
 
 Averages.. $942,841 40.4 $x,95x.79 $48.28 $12.37 
 
 $38.72 
 54.86 
 44.16 
 55. 45 
 70.52 
 31.82 
 66.63 
 37.17 
 53-15 
 60.32 
 49.38 
 80.50 
 
 162.95 
 3647 
 77.17 
 30.6s 
 57.89 
 47 
 44.59 
 39.18 
 38.38 
 55-43 
 S7.2X 
 33. 8x 
 29. SS 
 80.83 
 82.41 
 5X.02 
 40. 38 
 56.05 
 35-06 
 63.09 
 35.46 
 47.84 
 43-39 
 51-73 
 58.43 
 69. 48 
 64.56 
 50.59 
 
 $x6.X3 
 16.67 
 X7.86 
 X9.23 
 33.81 
 6.33 
 x8.S3 
 X0.87 
 16.13 
 13.50 
 18.52 
 16.67 
 71.43 
 14.71 
 16.13 
 X0.87 
 10.87 
 14-29 
 X7.86 
 8-77 
 
 XX. II 
 
 14.39 
 12.82 
 
 3.25 
 10.42 
 20.83 
 17.86 
 10. 20 
 
 6.94 
 IX. 63 
 
 12.82 
 31.74 
 
 8.77 
 
 14.7 
 
 10.87 
 
 19-33 
 
 X9-33 
 
 10.87 
 15.63 
 9.80 
 
 41.6 
 
 30.3 
 40.4 
 34.6 
 33.7 
 19.8 
 37.7 
 
 39. 2 
 30.3 
 
 30. 7 
 
 37.4 
 
 20.7 
 
 43-8 
 
 40.3 
 
 20.8 
 
 35. 4 
 
 18.7 
 
 30.6 
 
 40.0 
 
 30 
 
 39 
 
 25.7 
 
 33.4 
 
 09.6 
 
 35.3 
 
 25.7 
 
 31 . 6 
 
 30.0 
 
 17.3 
 
 30. 7 
 
 36.4 
 
 34.4 
 
 24 
 
 30 
 
 24 
 
 31 
 
 $700.35 
 1, 145.80 
 
 736.40 
 
 941.63 
 
 980. 96 
 2,014.00 
 I, 299. 10 
 I , 209.91 
 X. 147.58 
 1,9x3.78 
 
 833-39 
 1,915.00 
 
 640 . 66 
 
 740 . 00 
 1.893-37 
 
 910.00 
 2, 163.84 
 1, 148. 64 
 
 748.40 
 1 , X63 .00 
 
 777.04 
 I , 440 . 00 
 1,731.37 
 4,707.47 
 
 918.51 
 1 , 440 . 00 
 1,807.58 
 
 3, 000. 00 
 
 3 , 400 . 00 
 
 1,910.00 
 
 867,44 
 
 951 08 
 X, 521.00 
 X, X26-46 
 X. SOS- 09 
 I , 105 ,00 
 1,278.86 
 2.695.94 
 1,566.07 
 2,080.00 
 
 3.1 
 2.7 
 x.S 
 1.9 
 1.9 
 3.4 
 
 2.3 
 2.0 
 1.8 
 2.9 
 
 25.6 
 
 $1,451.79 
 
 0.7 
 0.9 
 
 X.7 
 x.o 
 o.g 
 
 TABLE III 
 
 Statistics op Massachusetts Towns of Less Than Five Hundred Families, 
 Which Supported High Schools, 1903-7 
 
 Year 
 
 Number 
 
 of 
 
 towns 
 
 Total 
 
 amount 
 
 o£ 
 
 State 
 
 grant 
 
 State 
 grant 
 
 to 
 each 
 school 
 
 Number 
 of pupils 
 enrolled 
 
 Average 
 
 cost 
 to Sute 
 per pupil 
 enrolled 
 
 
 26 
 34 
 36 
 37 
 
 40 
 
 $8,400.00 
 10,200.00 
 xo,8oo.oo 
 IX, 100.00 
 20,000.00 
 
 $300 
 300 
 300 
 300 
 
 500 
 
 917 
 1,117 
 1,338 
 1,372 
 1,617 
 
 $9.16 
 8.67 
 8.07 
 8.09 
 
 13. 36 
 
 
 
 
 
 
State Aid by Granting Subsidies 
 
 201 
 
 TABLE II 
 
 Statistics op Twentt-onk Massachusetts Towns Which Received at Least 
 
 Five Hundred Dollars Each Upon Account op Reiubursbd Tuitions 
 
 in 1907 
 
 Towns 
 
 a 
 
 2 « 01 
 13 -g 
 
 O O * 
 
 * .if 
 
 ■0:3 «„• 
 
 •iill 
 
 S t 
 II 
 
 S 9 
 
 5e 
 
 S03S 
 
 R ea ¥ <d 
 
 Sill 
 
 lis 
 
 West Stockbridge. 
 
 Charlemont 
 
 Whately 
 
 Becket 
 
 Sunderland 
 
 Tynsborough 
 
 Berlin 
 
 Colrain 
 
 Southwick 
 
 Lakeville 
 
 East Longmeadow 
 
 Acushnet 
 
 North Reading. . . . 
 
 Buckland 
 
 Middleton 
 
 Rowley 
 
 Lynnfield 
 
 Erving 
 
 Tewksbury 
 
 Swansea 
 
 Bedford 
 
 Averages 
 
 »38j, 
 388, 
 433. 
 46s, 
 480, 
 491. 
 537, 
 635, 
 634, 
 639, 
 64a, 
 66a, 
 669, 
 699, 
 734, 
 734, 
 740, 
 873, 
 98s, 
 1 ,305, 
 I.JS4, 
 
 S4I 
 275 
 057 
 667 
 270 
 577 
 915 
 980 
 330 
 937 
 tSS 
 930 
 769 
 331 
 5 90 
 693 
 136 
 513 
 346 
 093 
 659 
 
 16 
 
 18 
 9 
 34 
 31 
 «3 
 16 
 
 31 
 15 
 38 
 41 
 19 
 
 30 
 34 
 46 
 
 18 
 37 
 30 
 
 33 
 30 
 15 
 40 
 51 
 33 
 37 
 35 
 35 
 63 
 68 
 33 
 35 
 45 
 33 
 50 
 40 
 77 
 
 $576.00 
 
 528.00 
 
 55500 
 
 1,041.50 
 
 599 SO 
 
 500 . 00 
 
 838.00 
 
 1,037.35 
 
 635 .00 
 
 793 .00 
 
 ZtSOo.oo 
 
 X ,o6x .80 
 
 1,506.67 
 
 X, 453. 00 
 
 835.00 
 
 843.00 
 
 910.00 
 
 574-45 
 
 840 . 00 
 
 697-50 
 
 X , 080 . 00 
 
 $53.36 
 3300 
 46.35 
 52.07 
 
 33 30 
 55.55 
 34-91 
 33-45 
 48.07 
 49-50 
 74-28 
 70-78 
 39-64 
 35-4X 
 43-94 
 40.14 
 33-70 
 38.72 
 38.00 
 39.06 
 23-47 
 
 50 
 SO 
 50 
 
 $679,973 23. S 
 
 37.4 
 
 $878.69 
 
 $43. X7 
 
 *Chap. XIV. 
 
 TABLE IV 
 Statistics op Massachusetts Towns Reimbursed by State por Tuition Paid, 
 
 
 
 1903- 
 
 7 
 
 
 
 Year 
 
 Number 
 
 of 
 
 towns 
 
 Totel 
 
 State 
 
 exiKnditure 
 
 for 
 
 purpose 
 
 Average 
 
 amount 
 
 received 
 
 by 
 
 towns 
 
 Number 
 
 of pupils 
 
 for wnicb 
 
 State paid 
 
 tuition 
 
 Average 
 
 cost 
 to SUte 
 per pupil 
 enrolled 
 
 1903 
 
 97 
 
 106 
 
 100 
 
 97 
 
 $31,888.00 
 33,403.84 
 38,071.9s 
 36,196,67 
 36,613.94 
 
 $328.74 
 343-71 
 359-16 
 36X.96 
 377.46 
 
 966 
 x,o99 
 1. 194 
 1,077 
 x,o6x 
 
 $33.03 
 38.03 
 39-53 
 4X.06 
 42.07 
 
 
 
 1906 
 
 1907 
 
 the support of secondary education will be more difficult to 
 meet in the poorer than in the richer towns. 
 
 In view of the evidence presented, it seems to be clear, then, 
 that while the present law granting a direct subsidy of $500 
 to all towns maintaining high schools of a certain standard, has 
 worked to equalize partially the burdens attendant upon the sup- 
 port of high schools by the various towns, it has by no means 
 solved the problem. 
 
202 State Aid by Granting Subsidies 
 
 The other method of state support practiced in Massachusetts, 
 namely, that of reimbursing the towns for tuition expended, has 
 completely raised the burden of providing for secondary educa- 
 tion from the shoulders of the poorer towns, but it has not 
 brought the secondary educational opportunities to the home 
 community. In fact, it has probably worked in some cases to 
 hinder such opportunity from being created in certain towns. 
 Thus it has been instrumental in hindering some individuals 
 from securing a secondary education. At the same time it has 
 secured educational opportunities to many more. 
 
 A glance at Table II will show that, of the towns with an 
 assessed valuation of not to exceed $750,000, no greater effort 
 is required of the rich than of the poor, and that the amounts 
 received per capita for tuition paid by these towns have ranged 
 from $30.00 to $74.28. This opens up the main question under 
 consideration: Does the present method of combining a direct 
 state subsidy to high schools in the poorer towns, together with 
 the reimbursement of tuition paid by the poorer towns, work 
 equitably and efficiently in the state of Massachusetts? 
 
 A comparison of the averages to be found in Tables I and II 
 will show that while the state contributed but $500 to each of 
 the forty towns maintaining high schools, it contributed an 
 average of $878.69 to each of twenty-one towns that did not 
 support high schools. The state aid to the latter towns ranged 
 from $500 to $1,560 each. The average per capita cost of sec- 
 ondary education in the forty towns that supported high schools 
 was $48.28, of which amount the state paid $12.37, or 25.6 per 
 cent. The average per capita amount paid by the state for sec- 
 ondary education in the twenty-one towns that did not maintain 
 high schools was $42.17, or nearly three and a half times the 
 average per capita amount contributed to the larger group of 
 towns. 
 
 Sixteen of the forty towns which received the direct bonus of 
 $500 had an assessed valuation of less than $750,000, or an 
 average of $593,680; while there were seventeen towns of the 
 state with an assessed valuation of less than $750,000, or an 
 average of $585,937, which received amounts ranging from $500 
 to $1,560, or an average of $897.68 each upon the account of 
 reimbursed tuition. The gross number of pupils enrolled in the 
 high schools of the sixteen towns was 534, while the gross num- 
 
State Aid by Granting Subsidies 203 
 
 ber of secondary pupils in the seventeen towns was but 352. 
 Thus it will appear that the state contributed $8,000 toward the 
 education of 534 pupils in the first group of towns, while it con- 
 tributed $15,260.54 toward the education of 352 pupils in the 
 second group. Reducing to the basis of the individual pupil, 
 we find that the state contributed an average of but $14.98 per 
 capita toward the education of the secondary pupils in the group 
 of towns that supported high schools of their own, and an 
 average of $43.35 per capita for the same purpose to the towns 
 that made no effort upon their own part. It seems, then, that 
 the state contributed an average of three times as much per 
 capita for the education of the youth in the seventeen towns 
 that made no effort upon their own part, as it did for those 
 of the sixteen towns that maintained high schools of their own, 
 although the assessed valuation of the towns in the two groups 
 was practically equal. The fact that a certain number of the 
 pupils in the high schools of the former group of towns are 
 tuition pupils, will affect the above proportions somewhat; but 
 the number of such pupils is not large enough to materially change 
 these proportions. 
 
 Judging, then, from the figures at hand, it would appear that, 
 from a financial standpoint, the towns of the second group are, 
 upon the whole, as able to support high schools as those of the 
 first. And, if the amounts contributed to these towns by the 
 state were permitted to remain the same, these towns would be 
 able to do so with greater ease. A glance at the third column 
 of figures in Table II will show that most, if not all, of these 
 towns would, if they had local high schools, have a sufficient 
 attendance to warrant their existence. 
 
 While the above analysis and discussion has resulted in estab- 
 lishing the original contention, namely, that the direct subsidy 
 and reimbursed tuition schemes, as practiced in Massachusetts, 
 do not work with equity, and consequently do not produce the 
 best possible results, the degree of the inequality and ineffective- 
 ness of the combination can be shown best by comparing smaller 
 groups and individual towns. 
 
 Seven of the twenty-one towns listed on Table II received 
 more than $1,000 each from the state, or more than twice the 
 amount received by any town supporting a high school of its 
 
204 State Aid by Granting Subsidies 
 
 own. The average evaluation of these seven towns was $716,924, 
 or an amount which exceeded the evaluation of any one of thir- 
 teen of the towns on the other list. One of the seven had an 
 evaluation of $1,254,659, or an amount which exceeded the 
 evaluation of any one of thirty-three of the forty towns sup- 
 porting high schools. 
 
 There were three towns receiving from the state, on account 
 of reimbursed tuition, amounts equal to or exceeding $1,452, 
 while there were twelve towns of the other group which ex- 
 pended less than this amount annually for the current expenses 
 of their high schools. These three towns had an average of 33 
 tuition pupils each, while the twelve towns had an average 
 enrollment of 32 pupils each in their local high schools. Thus 
 it is evident that these three towns could have entirely supported 
 local high schools of a standard equal to that required by the 
 state board, upon the money received from the state alone. 
 
 When the fact that the evaluation for the poorest of these 
 three towns is greater than that of nine of the group that sup- 
 port high schools is taken into consideration, it will be evident 
 that, other things being equal, these towns should, with state 
 aid, be supporting high schools of their own. If this were the 
 case the number of high school pupils in these towns would, 
 in all probability, be from 60 to 75 per cent greater than at 
 present.^ Thus the average enrollment for each of the three 
 towns would be likely to exceed 55 pupils. In case these towns 
 were to tax themselves one and two-thirds mills upon the dollar, 
 the average tax rate necessary to raise the local funds in the 
 forty towns, they could raise an average of $1,117 to the town, 
 which would be more than ample to take care of the additional 
 pupils that would materialize in case they maintamed local high 
 schools. 
 
 It will be noticed that three towns of the group receive from 
 the state but half of the amounts expended for tuition. The 
 total expenditures for secondary education in these towns were 
 $1,395, $1,680, and $2,160, — enough in any case to have main- 
 tained a high school. 
 
 Tables III and IV show that the situation described above has 
 existed for some years. In fact, the inequalities produced by 
 
 'Rep't of the State Board of Edu., Mass., 1903-4, pp. 222-4. 
 
State Aid by Granting Subsidies 205 
 
 the system were much greater previous to 1907 when the amount 
 of the state subsidy was only $300. 
 
 It seems that the number of towns maintaining high schools 
 and receiving the state grant has increased from 26 to 40 in the 
 four years. This does not mean, however, that all of the new 
 towns on the list previously received state aid through reim- 
 bursed tuitions. In all probability, few if any of them did, 
 since a high school to receive the state subsidy must employ 
 two teachers and give a four years' course. The direct trans- 
 ference from the reimbursed tuition group to the direct subsidy 
 group would then imply the immediate creation of a complete 
 high school. There were at the time, 1907, ten town high 
 schools in the state that could not meet the requirements of 
 the state board.* None of the towns supporting these schools 
 received any aid from the state upon either account. 
 
 It will also be noticed that the number of towns receiving 
 aid on account of reimbursed tuition has neither increased nor 
 decreased during the four years. Twenty of these towns, having 
 an assessed valuation of more than $750,000 each, received but 
 half of the amounts expended for tuition. 
 
 While it has been demonstrated elsewhere in this study that 
 state aid has done much in Massachusetts towards extending 
 better educational opportunities to the rural youth of the com- 
 monwealth, the immediate presentation has established the fol- 
 lowing facts relative to the adequacy of the methods of extend- 
 ing this aid : — 
 
 First, the particular scheme employed in distributing this aid 
 through the combination of the direct subsidy and reimbursed 
 tuition plans has not worked with equity to the various towns. 
 
 Second, this fact has probably worked to discourage certain 
 towns from establishing and maintaining high schools of their 
 own. 
 
 Third, the direct subsidy plan has tended to equalize the bur- 
 dens of the various poorer towns supporting high schools, but 
 it has done so only to a certain degree. 
 
 Fourth, the tuition scheme employed does not discriminate 
 sufficiently between the poorer and the richer towns. 
 
 *See ante page 66. 
 
2o6 State Aid by Granting Subsidies 
 
 Fifth, the state is paying to several towns, on account of 
 reimbursed tuition, a sufficient amount to maintain efficient high 
 schools in these towns. 
 
 The establishment of these facts gives rise to the question 
 as to whether the state desires to encourage the maintenance 
 of high schools in the smaller and poorer towns. There can 
 be no doubt whatever that, upon the whole, the tuition 
 pupils are securing better educational opportunities than the 
 pupils attendant upon many of the small local high schools. On 
 the other hand, it has been demonstrated that 60 to 75 per cent 
 more pupils will attend a local high school.^ Fortunately, it 
 is not necessary to settle this general theoretic question here in 
 order to answer it for Massachusetts, since the attitude of the 
 state is clearly defined, by the fact that it is already paying 
 an annual premium of- $500 to many small high schools located 
 in very poor towns, and, by the further fact that any one of 
 these schools is permitted to receive pupils whose tuition may 
 be wholly or partly borne by the state. 
 
 No direct state aid is given to high schools in Connecticut, 
 but state aid is provided to secondary education through the 
 state reimbursement of tuition and transportation paid by such 
 towns as do not maintain high schools of their own. The legal 
 provision is about as follows: First, any town not maintaining 
 a high school may pay the tuition of its qualified high school 
 pupils in attendance upon neighboring high schools, or in attend- 
 ance upon an academy located within the town. Second, any 
 such town may provide transportation for its pupils of sec- 
 ondary grade to and from such high schools. Third, the state 
 agrees to reimburse each of these towns for such tuition pay- 
 ments, provided that the state will not pay for this purpose 
 more than $30 annually upon the account of any one pupil. 
 Fourth, the state agrees to reimburse any such town to the 
 extent of one-half the amount expended for transportation, pro- 
 vided that the state will not pay for this purpose more than $20 
 annually upon the account of any one pupil. 
 
 The following statistics are presented to show: (i) that the 
 above law discriminates against such towns as support high 
 
 'Rep't of State Board of Edu., Mass., 1903-4, pp. 222-4. 
 
State Aid by Granting Subsidies 
 
 207 
 
 schools, and thus hinders the establishment of the same; (2) 
 that the state is of itself contributing to certain towns amounts 
 sufficient to maintain high schools within their borders; and (3) 
 that the amounts already expended upon secondary education 
 would maintain high schools in many more of these towns. 
 
 The selection of the towns in the second group was made upon 
 the basis of the number of pupils enrolled in non-local high 
 schools. Each of these towns would, in all probability, furnish 
 enough pupils to constitute a real high school were such an 
 institution established within its boundaries. In general, any such 
 town not having an academy within its borders would produce 
 a minimum of thirty-three pupils for a local high school." A 
 glance at Table V will show that but six of the high schools 
 listed there exceed this number, and if the non-resident pupils 
 be subtracted but four do so. 
 
 TABLE V 
 
 Statistics op Twentv-one Connecticut High Schools That Expended Less 
 
 Than $i,soa Each for Maintenance During the Academic Year, 
 
 1903-4* 
 
 Towns 
 
 New Hartford. . 
 
 Middlebury 
 
 Somers 
 
 New Haven. . . . 
 Sfonington. ... . 
 
 Windsor 
 
 South Windsor. 
 
 Plymouth 
 
 North Canaan. 
 East Lyme. . . . 
 
 Salisbury 
 
 Groton 
 
 Plymouth 
 
 Stonington 
 
 Orange 
 
 Old Saybrook . . 
 
 Madison 
 
 Midford 
 
 Woodbury. . . . 
 
 Salisbury 
 
 Newtown 
 
 Averages a6 . 8 
 
 
 14 
 17 
 27 
 
 14 
 14 
 18 
 19 
 
 12 
 
 40 
 24 
 30 
 28 
 32 
 22 
 5 
 
 37 
 22 
 42 
 34 
 57 
 56 
 
 
 $6 
 
 100 
 36 
 
 108 
 
 6 
 
 189 
 
 
 36 
 
 o 
 
 $231.25 
 
 400 . 00 
 
 477-41 
 
 580.00 
 
 583.10 
 
 605.05 
 
 645.15 
 
 735 20 
 
 898.18 
 
 900.00 
 
 920.00 
 
 1 ,067 .00 
 
 I ,078. 70 
 
 I ,082.00 
 
 1.177.27 
 
 1,316.00 
 
 1.337.03 
 
 I ,483.00 
 
 1,422.13 
 
 1,470.57 
 
 1 ,476.96 
 
 $946.95 
 
 »3 
 
 Ota 
 
 u o 
 
 $16.52 
 23 53 
 17.68 
 41-43 
 41.6s 
 33.6l 
 33 95 
 61 . 26 
 22.45 
 37-50 
 30-66 
 38- II 
 33-71 
 49-18 
 
 235-45 
 35-57 
 60.77 
 35.31 
 41-83 
 25.79 
 26.37 
 
 $35 33 
 
 The high schools in the towns printed in italics were approved by the State Board, 
 of these schools occupied separate buildings. 
 
 • Report of State Board of Education, 1905, pp. 164-7- 
 
 'Rep't of State Board of Edu., Mass., 1903-4, pp. 222-4. 
 
 None 
 
208 
 
 State Aid by Granting Subsidies 
 
 TABLE VI 
 
 Statistics of Towns op Connecticut That Sent Twenty or More Pupils Eacb 
 TO NoN-LocAL High Schools During the Academic Year 1903-4 (*) 
 
 Towns 
 
 1 
 
 ■0 
 Z 
 
 ¥ 
 
 III 
 
 11 
 0*^0. 
 
 to 
 
 gw 
 3 
 
 1 
 
 oca 
 C14 
 
 ■2i5 
 
 CO 
 
 U 
 hi 
 
 o^co 
 
 IIS 
 
 Berlin 
 
 Chatham 
 
 New Canaan. 
 Plainfield... 
 Hamden .... 
 Thompson.. . 
 EastWindsor 
 
 Darien 
 
 Brooklyn,. . . 
 FairBeld .... 
 Pomfret .... 
 Cromwell — 
 Lebanon. . . . 
 Ellington.. . . 
 
 45 
 30 
 22 
 30 
 30 
 30 
 37 
 27 
 24 
 26 
 21 
 21 
 20 
 28 
 
 $2,ooS.oo 
 
 1,288.42 
 1,487.50 
 1,212.72 
 1,476.60 
 1,216.15 
 1,331.02 
 1,170.1s 
 1,052.98 
 1.256.25 
 898.87 
 
 952-So 
 615.00 
 
 701.00 
 
 $563.03 
 961.80 
 582.9s 
 786.75 
 478.98 
 609.74 
 470.45 
 487.50 
 572.05 
 341.5s 
 645.40 
 
 354.IO 
 644.00 
 321.20 
 
 $2,571.03 
 2,250.22 
 2.070.45 
 1.999.47 
 1.955.58 
 1,825.89 
 1,801.47 
 1.657.65 
 1,625.03 
 
 1, 597. 80 
 1.544.27 
 1,306.60 
 1,259.00 
 1,022.20 
 
 $57.13 
 75.00 
 94.11 
 66.65 
 65.18 
 60.86 
 48.69 
 61.36 
 67.71 
 61.45 
 73.54 
 
 62.22 
 62.9s 
 36.51 
 
 $1,236.86 
 858.94 
 626.00 
 808.50 
 770.00 
 810.7s 
 883.20 
 685.42 
 720.00 
 732.0° 
 599.25 
 601.57 
 407.60 
 466.81 
 
 $281.51 
 
 281.48 
 391.46 
 23954 
 304.89 
 
 235.22 
 246.31 
 272.65 
 170.9s 
 322.70 
 177.OS 
 322.00 
 160.60 
 
 $1,518.37 
 
 1.334.86 
 
 907.48 
 
 1,199.96 
 
 1,009.54 
 
 1,115.64 
 
 1,118.42 
 
 931.73 
 
 974.65 
 
 902.9s 
 
 9210S 
 
 778.62 
 
 729.60 
 
 627.41 
 
 $33-74 
 44.49 
 41.2s 
 39.99 
 33-65 
 37,19 
 30.23 
 34.51 
 40.61 
 34.73 
 43.90 
 37.07 
 36.48 
 22.41 
 
 Averages. 
 
 27.92 
 
 $1,190.51 
 
 $558.53 
 
 $1,749.04 
 
 J62.64 
 
 $727-78 
 
 $277.30 
 
 $1,005.08 
 
 $36.00 
 
 (*) Report of State Board of Education, 1905. 
 
 It may appear that a comparison of the high schools and 
 towns in these two lists will demonstrate nothing definite for 
 the reason that most of these schools are at best only partial 
 high schools, and that they are probably also relatively of a 
 very low grade. Even though this were admitted, the fact 
 remains that nine of the twenty-one were approved by the state 
 board, and were consequently permitted to receive tuition pupils, 
 whose fees were payable by the state, — in case they came from 
 towns not supporting high schools. Again a comparison of the 
 statistics for the towns in Table VI with those of Massachu- 
 setts, in Table I, would in effect give the same result. 
 
 Referring, then, to Table VI we find that in 1903-4 there 
 were fourteen towns in the state sending 20 or more pupils 
 each an average distance of 5.8 miles to outside high schools. 
 The state contributed to these towns $10,188.90 on account of 
 tuition, and $3,882.28 on account of transportation, or a total 
 of $14,071.18 on both accounts. This makes an average of 
 $727.78 received on the first, and $277.30 received on the second 
 account, or a total average of $1,005.08 received by each town 
 on both accounts. The total amounts expended in these towns 
 on the account of secondary education was, for tuition $16,667.16, 
 for transportation $7,819.50, or a total of $24,486.66 for both 
 
State Aid by Granting Subsidies 209 
 
 purposes. The average expenditure in each of the towns was, 
 on the first account $1,190.51, on the second account $558.53, 
 or upon the two accounts $1,749.04. This latter item far exceeds 
 the greatest amount expended by any one of the towns in 
 Table V for the maintenance of its high school. It would be 
 more than sufficient to employ two teachers at salaries of $840.50 
 each, the average for the high school teachers of the state. 
 
 A comparison with the figures in Table V will show that the 
 average amount contributed to these towns by the State exceeds 
 the average total cost of maintaining high schools in twenty- 
 one towns of the state. A further comparison will also show 
 that the state was contributing an average of $36.00 per capita 
 towards the education of the secondary pupils in the fourteen 
 towns, while the average per capita cost of the secondary edu- 
 cation in the twenty-one towns was but $35.33. The total 
 average per capita cost of secondary education in the fourteen 
 towns was $62.64, while the average for the state was only 
 $49.62. It is quite evident, then, that most, if not all, of these 
 towns would maintain high schools of their own, if they were 
 furnishing these funds themselves. 
 
 Six of the fourteen towns were sending thirty or more pupils 
 each an average distance of 6.5 miles to non-local high schools. 
 They received from the state on the average $894.71 on account 
 of tuition, and $321.42 on account of transportation, or $1,216.13 
 on the two accounts. Each of thirteen of the high schools listed 
 above expended less than this amount for all current expenses. 
 The average expenditures for secondary education in the six 
 towns were $1,422.15 on account of tuition, and $645.12 on 
 account of transportation, or $2,067.28 on both accounts. The 
 latter amount would have been sufficient to employ two competent 
 teachers, and still there would have been $386.20 left for other 
 expenses. 
 
 The town of Berlin with an assessed valuation of $1,194,580 
 received from the state alone, $1,518.37 for the tuition and trans- 
 portation of 45 pupils who traveled an average distance of 5 
 miles each. This was a greater sum than any of the above 
 twenty-one towns used for all of its current high school expenses 
 for the year. At the same time nine of these schools employed 
 two or more teachers, six of them gave four-year courses, ten 
 of them gave three-year courses, and nine of them were approved 
 
2IO State Aid by Granting Subsidies 
 
 by the state board. As to the number of pupils, two of these 
 towns enrolled 56 and 57 respectively. 
 
 The total expenditure for the education of the forty-five pupils 
 in the town of Berlin amounted to $2,571.03. This amount 
 would have been sufficient to employ two competent teachers at 
 salaries equal to the average for high school teachers in the 
 state; and the remainder, $890, would have been ample to meet 
 all other necessary expenses. The expenditures for the same 
 purpose in each of two other towns exceeded $2,000, enough 
 to maintain a good high school. 
 
 The amount of state aid indirectly received by the twenty-one 
 high schools listed above has practically amounted to nothing, 
 since the total sum received by these towns on account of tuition 
 has not greatly exceeded 2 per cent of the total cost of 
 maintenance. 
 
 While reimbursed tuition has done much to extend secondary 
 educational opportunities in this state, it has discriminated 
 against such towns as have attempted to maintain high schools, 
 and has discouraged the establishment of these schools in cer- 
 tain other towns. It has undoubtedly aided some towns that 
 should have been supporting high schools of their own, and it 
 has failed to aid many poorer towns that have been struggling 
 to do so. The state has used its funds to lift the burden from 
 the shoulders of many that could have borne it themselves, and 
 it has in part failed to lighten this burden where it rested most 
 heavily. The net result has been that it has secured better 
 educational opportunities for a certain number, but it has actu- 
 ally kept such opportunities from being presented to others. 
 
 It is scarcely necessary in closing this chapter to direct atten- 
 tion to the fact that the sole intention has been to point out 
 some of the weaknesses and failures attendant upon two of 
 the most common methods of extending state aid to rural sec- 
 ondary education. 
 
 The following chapter will present the different schemes used 
 by the various states in their attempts to equalize the financial 
 burdens arising from the contemplated extension of secondary 
 educational opportunities to the rural youth of the country. 
 These schemes will be criticised and an attempt will be made 
 to present the different factors that must be taken into con- 
 sideration in any attempt to equalize the burdens and advan- 
 tages of such education. 
 
CHAPTER XIV 
 
 THE VARIOUS METHODS EMPLOYED IN AID OF SECONDARY 
 EDUCATION IN RURAL COMMUNITIES 
 
 There are certain general methods employed by the various 
 states in extending aid to rural secondary education. The most 
 common of these is that of paying certain sums of money direct 
 to the various local communities supporting high schools. An- 
 other common method is that of directly or indirectly paying the 
 whole or a part of the tuition fees of pupils residing in poor 
 towns not supporting high schools. A third method employed 
 is that of reimbursing towns not supporting high schools for a 
 part of the expense incurred by the free transportation of sec- 
 ondary pupils to and from non-local high schools. In addition 
 to these special methods most of the states aid secondary educa- 
 tion in the same manner and to the same extent as elementary 
 education. 
 
 Since the main purpose of this work has been to set forth 
 the different legislative schemes employed by the various states 
 in attempting to secure an extension of secondary educational 
 opportunities to a larger number of the rural youth of the coun- 
 try, and since this matter, as already presented, is too scattered 
 to enable the reader readily to grasp the extent to which each 
 of the various methods are employed, it will be necessary to 
 assemble the facts and place them in a more convenient form 
 before proceeding with the discussion of the merits of the vari- 
 ous plans in operation. 
 
 Only such matter will be presented in these outlines as refers 
 to special state aid to secondary education. This matter will 
 be arranged in three groups. The first of these will include 
 such states as provide for special aid only through the granting 
 of subsidies to high schools. The second will include the states 
 that provide such aid only through the payments of tuitions. 
 The third group will include such states as employ both 
 methods. 
 
212 The Various Methods Employed in Aid of Education 
 
 GROUP I 
 
 The States That Provide Special Aid to Secondary Education 
 Only by Granting Subsidies to High Schools 
 
 Minnesota. 
 
 1. Provides $1,500 for each four-year high school. 
 
 a. The general appropriations not quite sufficient to meet 
 
 the need. 
 
 b. But seven schools may receive aid in any one county, 
 
 the last established being preferred. 
 
 2. Provides $750 additional for such schools as maintain normal 
 
 departments. 
 
 3. Provides $550 for state graded schools, which may do one, 
 
 two, or three years of high school work. 
 
 4. Provides a complete system of inspection for these schools. 
 
 5. Provides that these schools shall be free to non-resident pupils. 
 
 California. 
 
 1. Raises by taxation $15.00 for each pupil in average daily 
 
 attendance upon all high schools the preceding year. 
 
 2. Apportions one-third of this amount equally among all the 
 
 high schools of the state. 
 
 3. Apportions two-thirds upon the basis of average daily attend- 
 
 ance in these schools. 
 
 4. Requires each school to give a four-year course, and after 
 
 the first year to employ two teachers. 
 
 5. Requires that any such school shall submit to inspection by 
 
 the university authorities. 
 
 6. Provided in 1904, $543.93 on account of equal distribution, 
 
 and $11.18 per pupil on account of attendance. In 1905 
 the first item dropped to $502.68, and the second to $8.51. 
 
 7. Provides that the tuition fee in any high school shall not 
 
 exceed the per capita cost of the same to the local com- 
 munity. 
 
 Wisconsin. 
 
 I. Provides one-half the cost of instruction in each township 
 high school. 
 
The Various Methods Employed in Aid of Education 213 
 
 2. Provides one-half the cost of instruction, — ^but not to exceed 
 
 $500 in each case, — in district, town, or city high schools. 
 a. The general appropriations have never been quite suf- 
 ficient to meet the need. 
 
 3. Provides one-half the cost of instruction, — ^but not to exceed 
 
 $250 in each case, — in manual training departments in high 
 schools. 
 
 4. Provides two-thirds of the cost of maintenance, — but not to 
 
 exceed $4,000 in each case, — in county agricultural schools. 
 
 5. Provides for thorough inspection of all of these schools. 
 
 North Dakota. 
 
 1. Provides $300 for each high school giving a two-year course. 
 
 2. Provides $500 for each high school giving a three-year course. 
 
 3. Provides $800 for each high school giving a four-year course. 
 
 4. Has not always provided sufficient general funds to meet the 
 
 needs. 
 
 5. Provides for inspection by State Superintendent. 
 
 Pennsylvania. 
 
 1. Provides $400 for each high school giving a two-year course. 
 
 2. Provides $600 for each high school giving a three-year course. 
 
 3. Provides $800 for each high school giving a four-year course. 
 
 4. Has never provided sufficient funds to meet the needs. 
 
 5. Does not provide for state inspection. 
 
 Washington. 
 
 1. Provides that each union high school may receive an appor- 
 
 tionment of state school moneys upon a basis of at least 
 two thousand days attendance. 
 
 2. Provides $100 for each high school grade maintained. 
 
 3. Provided to each of these schools, in 1906, amounts ranging 
 
 from $272 to $1,334. 
 
 Florida. 
 
 1. Provides $360 to such schools as give at least two-year courses. 
 
 2. Provides $600 to such schools as give four-year courses. 
 
 3. Does not provide adequate inspection. 
 
214 The Various Methods Employed in Aid of Education 
 
 Virginia. 
 
 I. Provides that if a local community will raise at least $250 
 annually, the state will annually appropriate an equal 
 amount, but not to exceed $400 to any one such district. 
 
 South Carolina. 
 
 I. Provides that any local community maintaining a high school, 
 may receive from the state an amount equal to one-half 
 of the amount raised locally, but not to exceed $1,200. 
 
 Alabama. 
 
 I. Provides that such counties as establish and maintain high 
 schools may receive from the state $2,000 annually. 
 
 GROUP II 
 
 The States That Provide Special Aid to Secondary Education 
 Only by Providing for Tuition 
 
 New Hampshire. 
 
 1. Requires that towns not maintaining high schools must pay 
 
 the tuition of all of their secondary pupils. 
 
 2. Provides that such towns with a school tax of 3.5 mills or 
 
 more, and with a general tax of 16.5 mills or more, may 
 be reimbursed to the extent of 10 to 100 per cent of the 
 amounts expended for tuition. 
 
 3. Provides that such of the above towns as have a general rate 
 
 that does not exceed 16.5 mills by more than .99 of a mill, 
 may receive 10 per cent of the amount expended, and such 
 others as have a general rate that does not exceed 16.5 
 mills by more than 1.99 mills, may receive 20 per cent of 
 the amount expended, etc. 
 
 Vermont. 
 
 1. Requires that all towns must maintain high schools or pro- 
 
 vide free tuition. 
 
 2. Provides that the state will reimburse certain of these towns 
 
 in amounts bearing a certain relation to the proportion of 
 the general tax levy that is applied to education. 
 
The Various Methods Employed in Aid of Education 215 
 
 Delaware. 
 
 I. Provides $15.00 annually for the payment of the tuition of 
 each high school pupil in attendance from a district that 
 does not maintain such school. 
 
 Connecticut. 
 
 1. Requires that all towns not maintaining high schools must 
 
 provide free tuition. 
 
 2. Provides for the reimbursement of these towns for tuition 
 
 paid, but not to exceed $30.00 annually upon the account 
 of any one pupil. 
 
 3. Permits any town to provide free transportation for secondary 
 
 pupils. 
 
 4. Provides for the reimbursement of these towns in an amount 
 
 equal to one-half the amount so expended, but not to exceed 
 $20 annually upon the account of any one pupil. 
 
 GROUP III 
 
 The States That Provide Special Aid to Secondary Education 
 by Both Granting Subsidies and Reimbursing Tuitions 
 
 Maine. 
 
 1. Provides one-half the cost of instruction in high schools, — 
 
 but not to exceed $250 in any case. 
 
 2. Provides that only two such schools may receive aid in any 
 
 one town; and the two taken together may only receive 
 $250. 
 
 3. Provides subsidies to certain academies by special acts. 
 
 4. Requires all towns not maintaining high schools to provide 
 
 free tuition, which must not exceed $30.00 annually per 
 pupil. 
 
 5. Provides for the reimbursement of these towns to the extent 
 
 of one-half of amount so expended, — but in no case to 
 exceed $250 per annum. 
 
 Massachusetts. 
 
 I. Requires all towns with more than 500 families to maintain 
 high schools. 
 
2i6 The Various Methods Employed in Aid of Education 
 
 2. Provides $500 to such towns of less than 500 families as 
 
 maintain high schools.* 
 a. Requires such schools to employ at least two teachers. 
 
 3. Requires such towns as do not maintain high schools to pro- 
 
 vide free tuition. 
 
 4. Reimburses such of these towns as have an evaluation of less 
 
 than $750,000 in an amount equal to that of such tuition.* 
 
 5. Reimburses those having an evaluation of $750,000 or more, 
 
 in an amount equal to one-half the amount so expended* 
 
 New York. 
 
 1. Provides $100 to each academic department. 
 
 2. Provides for each high school department an amount equal 
 
 to the amount locally raised for books, pictures, apparatus, 
 etc., — but not to exceed $268 annually. 
 
 3. Provides for each nonsectarian academy an amount equal to 
 
 the amount locally raised for books, pictures, apparatus, etc., 
 — but not to exceed $250 annually. 
 
 4. Provides $2.00 for each teacher employed in academic de- 
 
 partments. 
 
 5. Provides for a certain apportionment upon aggregate days' 
 
 attendance. 
 
 6. Provides to a school of forty pupils upon all the above 
 
 accounts an average of about $325 annually. 
 
 7. Provides free tuition to pupils ccmiing from districts having 
 
 no academic departments of their own. 
 
 8. Provides that the amount of such tuition, — except in the larger 
 
 cities, — shall not exceel $20.00 per pupil, and that the state 
 shall pay the whole of this amount. 
 
 Rhode Island. 
 
 1. Provides $20.00 for each of the first 25 resident pupils in 
 
 average daily attendance upon a township high school, and 
 $10.00 for each of the second 25 pupils. 
 
 2. Provides that towns not maintaining high schools may receive 
 
 aid upon the same basis for such of their pupils as attend 
 non-local high schools. 
 
 *No town may receive aid upon either of the above accounts if its 
 evaluation averages a larger sum for each pupil in the average member- 
 ship of its public school than the corresponding average for the state. 
 
The Various Methods Employed in Aid of Education 217 
 
 North Carolina. 
 
 1. Provides that if a local community will raise at least $250 
 
 annually, the state will annually appropriate an equal 
 amount, — but not to exceed $500, — to any cxie such district. 
 
 2. Provides that, if any county shall furnish free tuition, the 
 
 state will reimburse it to the extent of one-half the amount 
 expended for the purpose, — but not in an amount in excess 
 of $500. 
 
 As indicated in the above outline there appears to be in prac- 
 tice but two general plans of extending special state aid to sec- 
 ondary education, — namely, that of paying state subsidies to high 
 schools, and that of directly or indirectly paying tuitions. The 
 purpose of state aid, whether it be extended by the former or 
 the latter method, is to increase secondary educational oppor- 
 tunities in rural communities. Such increase may be in the direc- 
 tion of bettering existing opportunities, or in that of extending 
 the same to a larger number of the rural youth. The different 
 schemes adopted by the several states have worked to conserve 
 these two interests in varying degrees; but they have not, as a 
 rule, been properly adjusted to the conditions and needs of the 
 various commonwealths wherein they operate. 
 
 In general reimbursed tuition and reimbursed transportation 
 work to increase the efficiency of existing schools, and do not, 
 upon the whole, tend to increase the number of high schools. 
 On the other hand, the direct subsidy scheme, unless strictly 
 conditioned, tends to increase the number of such schools. If, 
 then, state subsidies are granted without restriction to the poorer 
 districts, the net result will be the extension of secondary educa- 
 tional opportunities to many more rural youth. If, on the other 
 hand, unrestricted tuition payments are made to the towns not 
 supporting high schools, the result will be that secondary edu- 
 cational opportunities of a superior quality will be extended to 
 a certain class of the rural youth, while many others will still 
 lack such opportunities. In most instances, however, the grant- 
 ing of special state subsidies is conditioned by certain require- 
 ments of efficiency; and these requirements are in some cases 
 so high when compared with the amount of the state subsidies, 
 that they affect only slightly the spread of high schools. 
 
2i8 The Various Methods Employed in Aid of Education 
 
 It is not within the purpose here, to attempt to establish 
 theoretically the function of the state in regard to the financing 
 of secondary education in rural communities. Practically, as 
 shown by the above summaries, nineteen of the states were, at 
 the time of this investigation, extending such aid. This, and 
 the fact that several of these states have been doing so for more 
 than thirty years, are sufficient to show that such a policy is at 
 least deemed expedient. 
 
 The question as to whether the state, in extending this aid, 
 aims to better the secondary educational opportunities of a 
 certain group of the rural youth, or whether it aims mainly to 
 extend such opportunities to the larger number, is of vital im- 
 portance in the discussion to follow. However much the state 
 may interest itself in the better preparation of leaders, the fact 
 remains that a democracy ceases to be such when it consciously 
 aims at limiting opportunity. Theoretically, then, the state 
 should, if it extends aid to secondary education at all, aim as 
 nearly as possible to equalize universally secondary educational 
 opportunities. This implies, first, and primarily, the extension, 
 if possible, of such opportunities to all the youth of the com- 
 monwealth; and second, the improvement of the poorer of these 
 opportunities. All of which in turn implies that the state should 
 aim, first, to have if possible, a high school created in each 
 community that furnishes a sufficient number of pupils; second, 
 to provide for free tuition for all pupils residing in districts not 
 supporting high schools ; and third, to equalize as far as possible 
 the opportunities offered by these schools. 
 
 A careful study of the legislation in aid of rural secondary 
 education in the various states, together with that of the attitude 
 taken by the supporters and creators of such legislation, will 
 clearly show that the general views held have been approximately 
 the above, and that the laws created have been directed mainly 
 to securing these ends. The restrictive requirements placed upon 
 all such schools as receive state aid are largely intended to hinder 
 the misuse of the state funds. Where the qualifications have 
 been placed too high, or where the method employed in the 
 distribution of such aid has been faulty, inexperience and lack 
 of statistical information have been the cause. 
 
 The main purpose of the state in reimbursing tuitions is, then, 
 to extend educational opportunities to all youth not residing in 
 
The Various Methods Employed in Aid of Education 219 
 
 districts maintaining high schools, and not primarily to increase 
 the efficiency of existing high schools. Since this method alone 
 is practiced in certain states, and since it does not, under certain 
 conditions, work well in conjunction with the subsidy plan,^ 
 it will be necessary to point out its advantages and limitations. 
 The main weakness of the free tuition scheme is that, while it 
 may and does provide educational opportunities for a large pro- 
 portion of the youth of a given district, it cannot provide such 
 opportunity for all, because there are other limiting factors, — 
 such as cost of transportation, time lost in travel, and the neces- 
 sity of being away from home, — which hinder some from taking 
 advantage of the opportunity offered. A local institution also 
 gradually exerts a psychological influence which results in in- 
 creasing the number of secondary pupils in the community. 
 The extent to which a local institution will influence the number 
 of secondary pupils in a given community, has been statistically 
 worked out in Massachusetts by J. W. Macdonald ; and the result 
 of the study has been printed in the Report of the State Board 
 of Education. A quotation from this report will throw some 
 light upon the method pursued in the investigation, and also 
 upon the result of the study and its probable validity. 
 
 " The towns of the state having a population of 3,500, or less 
 (three or four larger), were divided into two classes: (a) those 
 that maintained local high schools with four-year courses; and 
 (b) those that sent their pupils to outside high schools. In the 
 table below, in parallel columns, I have shown by counties the 
 town in each of these classes that furnished the highest, and 
 the one that furnished the lowest, per cent of high school pupils 
 to population and also the average of them all for the county. 
 Suffolk and Nantucket counties, for obvious reasons, are omitted ; 
 and also in some of the counties a few towns that pursue a 
 middle policy, — that is, maintain a local school for the first year 
 or two of high school work. 
 
 " It should be noted that a much larger proportion of the 
 towns which maintain their own high schools than of the others 
 are manufacturing towns, that have a considerable part of their 
 population drawn from nationalities that as a rule furnish few 
 high school pupils. Ludlow and Hardwick are examples. Each 
 
 'See chapter XIII. 
 
2 20 The Various Methods Employed in Aid of Education 
 
 high school town, too, is credited with only its own pupils; all 
 outside pupils attending the school are credited to their own 
 towns. 
 
 " Making allowance for variations from year to year, it will 
 appear that only about three-fifths as many pupils will go to 
 an outside high school as would attend a local school."* 
 
 In order to check up the work, the author of the above made 
 the same calculations for the succeeding year, with practically 
 the same results. The above conclusion of the author is ap- 
 parently very conservative. This together with the fact that 
 he was in a position to know the influence of the factor of 
 selection upon his results, would lead one to accept the con- 
 clusion as a perfectly safe generalization. If, then, a local school 
 will cause a given community to increase its high school pupils 
 60 to 70 per cent, it is evident that free tuition alone cannot 
 bring about the end sought by the state in aiding secondary 
 education. The provision of free transportation reimbursed or 
 local, will, in a measure, decrease the above percentage, but it 
 cannot entirely equalize the opportunities. It will, then, be neces- 
 sary to turn either to the state subsidy scheme, or to a com- 
 bination of all these schemes. 
 
 The subsidy scheme may alone solve the problem for such of 
 the poorer towns as have pupils enough to create a high school, 
 but it cannot help such towns as do not have the requisite num- 
 ber of pupils, — unless such towns as receive the subsidy are 
 required to admit non-local pupils free of tuition. This scheme 
 would, however, only tend to transfer the burden to certain of 
 the districts of the state that could not well bear it. A certain 
 subsidy might be granted to each school upon the number of 
 such non-resident pupils in attendance; but this would only be 
 an indirect method of paying tuition. The disadvantage of such 
 a scheme would be that it would fail to take into consideration 
 the financial duties and abilities of the towns sending such 
 pupils. It seems, then, that the most equitable and efficient 
 method of securing the end in view, will be to combine all three 
 of the schemes. But it has been shown already' that the com- 
 bination of any two of these methods in such a manner as to 
 work with equity and efficiency is a difficult task, because of 
 
 'Rep't of the State Board of Edu., Mass., 1903-4, pp. 222-4. 
 'Chapter XIII. 
 
The Various Methods Employed in Aid of Education 221 
 
 the unequal conditions existing in the various local communities. 
 This situation involves the necessity of stating, as far as pos- 
 sible, the conditions under which any one of these schemes should 
 be put into operation, and also some of the factors that would 
 be involved in any adequate solution of the problem as to what 
 extent aid should be provided and by what method it could be 
 most equitably apportioned. 
 
 Dr. Cubberley, in his work entitled, " School Funds and Their 
 Apportionment," has shown that certain of the poorer rural com- 
 munities cannot possibly maintain efficient elementary schools 
 without state aid. He demonstrates the necessity for a large 
 state fund apportioned in such a manner as to insure that each 
 local community, rich or poor, may offer reasonably good edu- 
 cational opportunities to the young. Accepting this conclusion 
 as being correct, the question immediately arises as to whether 
 the high schools in rural communities should be aided in the same 
 manner and to the same extent only as the elementary schools. 
 If the state has adopted the policy of equalizing, as far as pos- 
 sible, secondary educational opportunities, the only answer to the 
 question is, that it must sooner or later provide sufficient funds 
 and apportion them to the various poorer communities in such 
 a manner as to enable them to maintain efficient high schools or 
 to provide secondary educational opportunities in neighboring 
 high schools. Due to the fact that the per capita cost of sec- 
 ondary is much greater than that of elementary education, and 
 due to the further fact that the local communities are in many 
 instances already overtaxing themselves to maintain elementary 
 schools, it will be necessary for the state to provide a much 
 larger amount per capita for secondary than for elementary 
 education. It will also be necessary that these funds shall be 
 apportioned in such a manner as to conserve best the interests 
 of all the established rural high schools of the state. 
 
 Under no condition, however, should the state, at the present 
 time, entirely and permanently lift the entire burden of main- 
 taining secondary education from the shoulders of the local com- 
 munities, because a financial responsibility upon the part of the 
 community creates an added interest in the institution. If the 
 burden of supporting the elementary schools properly is too 
 heavy in certain towns, the state should lift a part of it, and 
 thus permit the shifting of a measure of the local energy to the 
 
2 22 The Various Methods Employed in Aid of Education 
 
 support of secondary education. The larger effort of the local 
 community should still be permitted to apply to elementary edu- 
 cation, if for no other reason, because the institution has a 
 stronger hold upon the social mind. It is a commonly recog- 
 nized fact that the favorable social attitude towards free public 
 education decreases both in extent and intensity just as the type 
 of school under consideration advances in grade. This is par- 
 ticularly true in rural communities, and at present entails the 
 necessity for greater effort upon the part of the state towards 
 higher education. 
 
 The first factor which enters into the question as to whether 
 the local community should have a high school, is that of the 
 number of pupils of secondary grade in the community. The 
 usual minimum enrollment for a four-year high school receiving 
 state aid is commonly placed at twenty-five, though California re- 
 quires an average daily attendance of only twenty. Assuming 
 that the policy is to secure reasonably good secondary educational 
 opportunities to as many youth as possible, and bearing in mind 
 the fact that normally 60 to 70 per cent more pupils will attend 
 a local high school, the state should aim to provide that each 
 local community having a yearly average of twenty-five pupils, 
 may be enabled to maintain a four-year high school course of 
 its own. In order to secure the desired end the state should, 
 where necessary, provide by special subsidy sufficient aid to 
 enable any community to support a high school with a term 
 of one, two, three, or four years, provided that there is a suf- 
 ficient number of pupils in any one of these grades to warrant 
 its existence. The advantages to be gained in permitting the 
 establishment of these partial high school courses are, first, that 
 more pupils will secure at least a partial secondary education, 
 and second, that many of these schools will ultimately grow into 
 four-year schools. Of course there may be certain conditions 
 that would make it undesirable for such communities to main- 
 tain independent high schools, — where for instance a city high 
 school is located near, and rapid transportation to and from such 
 school is possible, or where the pupils of a local community 
 are distributed in groups that are each nearer to different neigh- 
 boring high schools than they would be to a local institution. 
 
 All schools receiving special state aid should be required to 
 meet certain conditions of efficiency, such as the offering of 
 
The Various Methods Employed in Aid of Education 223 
 
 certain minimum courses for each grade, the employment of at 
 least one regular teacher for each two-year school, and the 
 employment of at least two teachers for each three or four-year 
 school. Special supervisors or at least special inspectors should 
 be employed to see that such requirements are fulfilled, and to 
 aid in developing the efficiency of the schools. 
 
 To sum up, the special subsidy scheme should be employed 
 where needed by the state in order to enable each local com- 
 munity that can furnish the necessary pupils to constitute a high 
 school of either one, two, three, or four years, to maintain 
 such an institution. 
 
 All communities should be required to provide free tuition 
 in such high school grades as they do not maintain at home, 
 and also free transportation for such of their pupils as are in 
 attendance upon neighboring high schools. The state should 
 provide for the reimbursement of the poorer of these towns 
 upon both of these accounts, but it should in no case reimburse 
 them to the full extent of the expenditure. Further, any town 
 having within its borders a yearly average number of pupils 
 sufficient to constitute a four-year high school, and not having 
 a high school located as conveniently for these pupils as a local 
 one might be, should receive no aid from the state whatever, 
 upon account of either tuition or transportation. 
 
 Having confined the three schemes of providing state aid to 
 secondary education to their proper spheres, it will now be neces- 
 sary to state briefly the factors which must be taken into con- 
 sideration in equitably apportioning the state aid to the local 
 communities. In case the burden of supporting the elementary 
 schools has already been equalized by the proper distribution of 
 an adequate state fund, the only factors that need to be taken 
 into consideration in the distribution of a state high school fund 
 are, the length of the course offered, the number of pupils in 
 average daily attendance, and the assessed valuation. If, how- 
 ever, the burdens attendant upon the maintenance of efficient 
 elementary schools have not been properly adjusted, both the 
 general and school tax rates will have to be taken into con- 
 sideration. Then only will it be possible to divide the money 
 in such a manner as to conserve the best interests of the state 
 and of the various communities. Provided that the elementary 
 school problem is properly adjusted, some scheme similar to 
 
2 24 The Various Methods Employed in Aid of Education 
 
 the following would probably work with greater equity and 
 efficiency than any now in operation. 
 
 For the purposes of apportionment the schools should be 
 classified according to the number of grades maintained. It 
 would probably be best to create but two general classes, namely, 
 two-year and four-year schools, — ^these schools to employ at least 
 one and two teachers each respectively. Each should be re- 
 quired to maintain a certain minimum average daily attendance. 
 If the average daily attendance upon the upper grades in these 
 schools should, for two years in succession, fall below a certain 
 number, such grades should be abolished. Each school should, 
 if necessary, be permitted to receive, for one year, aid as a 
 two-year school, while maintaining but one grade with a certain 
 minimum enrollment. The second year it should be required to 
 maintain two grades. Any school already having received aid 
 as a two-year school should, — if it provided a three-year course, 
 with a certain minimum enrollment in the third year, — be per- 
 mitted to receive aid as a four-year school for one year. After 
 this it should be required to maintain a four-year course in 
 order to receive aid in this class. 
 
 The state aid should be apportioned to these schools, first, 
 upon the basis of class as modified by the evaluation of the 
 community, and second, upon the basis of the attendance of 
 pupils. 
 
 The amount of subsidy paid to each school of the two-year 
 class should be estimated by subtracting from a certain general 
 minimum amount ;— estimated by adding the yearly salary of 
 one teacher, a certain amount for incidental expenditures, and 
 the annual rental for one school room ; — the income arising from 
 a certain definite millage levied upon the assessed valuation of 
 the local community. The second apportionment should be made 
 by paying to each school a certain small definite amount for 
 each pupil in average daily attendance beyond the minimum 
 number required to constitute such school. 
 
 The amount of subsidy paid to each school of the four-year 
 class should be estimated by subtracting from a certain general 
 minimum amount; — estimated by adding the yearly salaries of 
 two teachers, a certain amount for incidental expenditures, and 
 the annual rental for two school rooms; — the income arising 
 from a certain definite millage (the same as above) levied upon 
 
The Various Methods Employed in Aid of Education 225 
 
 the assessed valuation of the local community. The second ap- 
 portionment should be made by paying to each school a certain 
 small definite amount for each pupil in average daily attendance 
 beyond the minimum number required to constitute such school. 
 
 The reason for making the apportionment upon attendance 
 small is, that up to a certain limit, the addition of pupils would 
 cause but slight added expense, and that the aim of such appor- 
 tionment is largely to interest the local authorities in keeping up 
 the attendance. If it were found to be necessary, the same 
 scheme could be extended to include a third teacher. 
 
 Communities not having within their borders a sufficient num- 
 ber of pupils to warrant the establishment of high schools, should 
 receive from the state the amounts necessarily expended for both 
 tuition and transportation less the incomes arising from a certain 
 definite millage (the same as above) levied upon their assessed 
 valuation. 
 
 In order to secure the best results from the application of 
 any such scheme as the above, it would be necessary to make pro- 
 vision for a union of districts with the free transportation of 
 pupils. In this case a subsidy sufficient to meet the expense of 
 transportation could be added. 
 
 Since the expenditure upon these various accounts adjusts 
 itself automatically, the provision for raising the necessary funds 
 should also be adjusted in such a manner as to work auto- 
 matically. This could be effected, after the first two or three 
 years of experience, by adding to the expenditure for the preced- 
 ing year a certain percentage for increase and raising the whole 
 of the increase by a state tax.