.62 
 
Release Monday, January 30, 1911 
 
 HOW MANY) 
 
 WHEN DO [ Children Fail? 
 
 WHY DO ) 
 
 A Cooperative Study as to Means of Reducing 
 Non-Promotion and Undue Acceleration 
 
 Which is worse, retardation or acceleration? 
 
 Exception was recently taken by one city superintendent 
 of schools to our Efficient Citizenship No. 393 because we re- 
 printed, without comment, two extreme diagnoses of retarda- 
 tion — acceleration of the unfit and non-promotion of the fit. 
 
 More recently the program committee of the Washington 
 Irving High School (New York City) declared in a brief en- 
 titled The Opposite of Retardation: "We believe that it is of 
 more value to find out how successful teachers educate their 
 children than it is to dwell upon the negative side of retarda- 
 tion and its causes. Why mention the reasons of failure and 
 elaborate them !" 
 
 But why confine ourselves to either extreme? Most of 
 us are able to go down a road whether we walk in the middle, 
 on the extreme left, on the extreme right or zig zag from left 
 to right. Certainly no one can doubt that it has been worth 
 while for the school men of the country to begin to ask ques- 
 tions about promotion and non-promotion, acceleration and 
 retardation, pupil's fault, parent's fault, school's fault, budget's 
 fault, overcrowding's fault. 
 
 The purpose of asking questions is primarily to put in cir- 
 culation best methods, and not merely to impart information. 
 Contributions will be welcome to the three kinds of light 
 thrown on best methods for reducing non-promotion and pre- 
 venting undue acceleration presented in this report : 
 
 I. Digest of returns from seventy-six answers to our non- 
 promotion inquiry No. 2; 
 
 II. Forms used and questions asked by various city super- 
 intendents ; 
 
 III. Extracts from letters addressed to the Bureau of Mu- 
 nicipal Research and from official reports. 
 
 [I] 
 
v^V 
 
 I. Digest of returns from seventy-six answers to our non-pro- 
 motion inquiry No. 2 
 
 Of 76 superintendents whose replies are given in the en- 
 closed table, 
 
 71 have irregular individual promotions in addition to stated 
 general promotions; 
 
 45 expect the principal to see each pupil before marking him 
 
 for non-promotion; 
 
 32 expect the principal to require written explanation by the 
 
 teacher as to each child before it may be held back; 
 
 26 report that the superintendent's office reads these explana- 
 tions; 
 
 9 report that the superintendent's office requires oral explana- 
 tion; 
 
 30 report that the written explanation gives the name of each 
 child and the cause or causes of his non-promotion; 
 
 40 count inefficiency of teacher as one cause of non-promotion; 
 
 28 count too many classes as a cause of non-promotion; 
 
 33 count crowded classrooms as a cause of non-promotion; 
 16 count part time as a cause of non-promotion; 
 
 59 count irregular attendance as a cause of non-promotion; 
 57 count late entrance as a cause of non-promotion; 
 
 60 report that the superintendent or principal discusses with 
 
 teachers and parents the causes and remedies for non- 
 promotion; 
 
 46 plan to discuss non-promotion in their next report; 
 
 67 base promotion partly on term's work and partly on ability 
 to do next term's work in advance grade. Of these 22 
 lay emphasis on the term's work, 38 on the child's ability 
 to do next term's work, 3 say "cannot separate the two," 
 and 2 say "depends on child." 
 
 6 promote on the term's work; 
 
 5 promote on child's ability to do next term's work; 
 
 14 have special "catch-up" classes; 
 
 10 have vacation school classes for non-promoted children; 
 
 66 require that special attention be given to pupils in danger 
 of failing; 
 
 45 give other special attention to non-promoted pupils; 
 
 20 do not state time for this special attention, but answer "time 
 not stated," "varies," "when teacher can," "when needed," 
 etc. 
 
 25 devote part of each day to this special work, 9 do not spe- 
 cify time, 16 give the time variously as "before and after 
 sessions," "late P. M.," etc. Leadville, Colo., employs a 
 special teacher, Champaign and Danville, 111., leave mat- 
 ter to parents, Hazleton, Pa., devotes one-third time to 
 individual work; 
 
 45 believe it possible to promote a higher percentage of pupils 
 without danger to the thoroughness of their schools; 
 
 16 have found inefficiency in pupils' work resulting from special 
 promotions; 
 
 18 have found inefficiency resulting from irregular promotions. 
 
 [2] 
 
i-S. 
 
 (b^ 
 
NON-PROMOTION IN 76 CITIKS: KKFORTS TO UNDERSTAND AND REDUCE 
 
 Plus a Graphic Argument for Uoiform, Adequate School Records and Reports 
 
 twice Qt other than stated p 
 loled nt first slated period 
 
 / time from September tlirouKli June I; 
 
 o also failed at first promotion period ? 
 enernl promotioas ? 
 >tiou period ? 
 
 11 At second slated period 
 
 ichool dui 
 ;ipal expected 
 
 y be held back ? 
 
 jidren promoted plus children not promoted is subtracted from i 
 
 pupil before markinK him for non-proraotic 
 written explauation by teacher as to each cli 
 intendent's office rend these cxpleiiatioiis ? 
 
 lal aud superintendent analyze the causes reported by teacher ' 
 
 ises include inefficiency of the teacher ? 
 
 Crowded class rooms ? 21 Part time ? 22 Irreenlai 
 
 riutendent or principal discuss with teachers and parents the cause: 
 
 scuss non-promotion in your last report ? 2( 
 
 n=No or none; nk = Not known; x = No answer ; ?=Doubt; *=Special i 
 
 19 Toon 
 
 attendanc 
 
 i remedies oi 
 
 23 Late entrance ? 
 swer; — = See preceding i 
 
 "cntch-up" class* 
 
 """i§' 
 
 1 lo pupils in daneei 
 lo the tUorouKliucs 
 
 31 On ability f 
 
 y other form of promotion ? 
 
 1 
 
 2 |3 
 
 4 
 
 5 
 
 6 
 
 7 
 
 8 
 
 9 j 10 
 
 11 
 
 12 
 
 13 14 15 16 1 
 
 17 
 
 18 
 
 19 
 
 20 
 
 21 
 
 22 
 
 23 
 
 24 1 
 
 25 1 
 
 26 
 
 27 
 
 28 { 
 
 29 
 
 30 1 
 
 31 
 
 32 
 
 33 
 
 34 
 
 35 
 
 36 
 
 37 
 
 38 
 
 39 
 
 40 
 
 41 
 
 RE,MARKS 1 
 
 Elizabeth, N. J 
 
 Erie, Pa 
 
 Ilecatur, 111 
 
 ManchesLer, N. H. . . . 
 
 Williainsport. Pa 
 
 Covington Ky 
 
 Lexington, Ky 
 
 Amsterdam, N. Y. . . . 
 
 S875 I 
 7667 2 
 6189 J 
 5507 2 
 5432 1 
 4412 I 
 4350 2 
 3320 2 
 ^060 2 
 iSoJ 2 
 .189 I 
 2569 2 
 456S 2 
 1250 2 
 1172 2 
 2629 I 
 11362 I 
 2149 2 
 
 1504 I 
 
 2971 2 
 
 1590 2 
 4137 2 
 
 2116 2 
 1740 2 
 2750 2 
 
 2300 1 
 
 6582 1 
 2466 1 
 3222 2 
 11964 2 
 1348 1 
 1920 1 
 14435 2 
 3004 2 
 1500 1 
 
 2308 J 
 
 906 
 1529 
 
 1193 
 3S10 
 1749 
 3124 
 
 5493 
 3676 
 1622 
 10550 
 3937 
 6801 
 2967 
 1788 
 1195 
 4599 
 1355 
 2017 
 3000 
 8879 
 3864 
 33519 
 4201 
 3679 
 2888 
 nk 
 
 2242 
 4854 
 4989 
 
 728 
 442 
 520 
 552 
 515 
 830 
 
 H 
 246 
 
 336 
 577 
 93 
 191 
 142 
 1261 
 
 nk 
 
 nk 
 
 81 
 
 312 
 
 nk 
 
 nk 
 
 30 
 116 
 597 
 
 nk 
 
 620 
 144 
 nk 
 1561 
 nk 
 ,S» 
 nk 
 292 
 160 
 nk 
 104 
 
 „\° 
 nk 
 
 nk 
 
 85 
 324 
 
 nk 
 361 
 
 nk 
 494 
 
 nk 
 728 
 
 nk 
 
 820 
 
 2 nk 
 
 1 258 
 
 2 123 
 I 799 
 
 1 104 
 
 2 nk 
 1 nk 
 
 1 ^63 
 
 2 2982 
 I 363 
 I 379 
 
 1 nk 
 
 2 nk 
 
 2 nk 
 2 nk 
 
 2 3S5 
 
 420 
 297 
 456 
 
 78T 
 
 237 
 50 
 
 302 
 443 
 69 
 15S 
 
 nk 
 
 29S 
 
 i 
 
 238 
 24 
 
 "5 
 
 249 
 
 nk 
 
 275 
 
 161 
 104 
 
 nk 
 
 384 
 
 172 
 273 
 590 
 252 
 nk 
 680 
 
 nk 
 nk 
 
 nk 
 
 303 
 2635 
 
 nk 
 
 12) 
 
 nk 
 
 257 
 
 93 
 
 325 
 
 29 
 5 
 
 nk 
 nk 
 nk 
 6 
 
 6 
 
 nk 
 nk 
 41 
 
 "K 
 
 nk 
 nk 
 
 6 
 nT 
 
 nk 
 
 nk 
 
 nk 
 nk 
 nk 
 
 nk 
 
 89 
 
 nk 
 
 nk 
 
 92 
 
 nk 
 
 nk 
 nk 
 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 
 y 
 y 
 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 
 ? 
 y 
 y 
 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 
 y 
 y 
 y 
 y 
 y 
 
 y 
 y 
 
 V 
 
 678 
 
 28-30 
 
 347 
 
 203 
 
 5 
 
 '11 
 42 
 
 6 
 25 
 nk 
 
 268 
 
 nk 
 266 
 nk 
 
 8 
 
 nk 
 
 6 
 
 77 
 nk 
 nk 
 nk 
 
 26 
 
 47 
 nk 
 nk 
 nk* 
 nk 
 48 
 nk 
 29 
 
 „/ 
 nk 
 
 44 
 
 nk 
 nk 
 nk 
 
 72 
 
 nk 
 
 6 
 
 1082 
 
 15 
 3 
 36 
 27 
 nk 
 nk 
 
 nk 
 nk 
 
 nk 
 nk 
 
 nk 
 
 nk 
 
 52 
 3 
 
 1 
 
 nk 
 nk 
 
 nk 
 nk 
 
 nk 
 
 nk 
 nk 
 nk 
 nk 
 
 7776 
 6119 
 3791 
 4229 
 3909 
 292S 
 3538 
 3200 
 2496 
 1775 
 725 
 1997 
 3842 
 
 862 
 2117 
 9650 
 
 nk 
 1 190 
 
 2239 
 
 nk 
 
 nk 
 nk 
 nk 
 
 nk 
 
 6489 
 
 3594 
 4152 
 
 3769 
 3200 
 2468 
 1716 
 
 1936 
 3821 
 1087 
 863 
 
 2184 
 
 nk 
 
 1544 
 2306 
 
 2448 
 nk 
 
 nk 
 
 2490 
 
 1692 
 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 
 y 
 
 y 
 y 
 y 
 
 y 
 
 y 
 
 y 
 
 y 
 y 
 y 
 
 1 
 
 y 
 y 
 y 
 y 
 y 
 y 
 
 y y y y 
 
 y Oral Report * 
 
 y y y* y 
 y y y y 
 y y y y 
 y y y y 
 
 y Oral Report 
 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 
 y 
 
 y 
 y 
 y 
 y 
 
 St. 
 
 y 
 y 
 y 
 
 y 
 
 y 
 y 
 y 
 y 
 y 
 y 
 
 St. 
 
 y 
 y 
 y 
 y 
 y 
 y 
 
 St. 
 
 y_^ 
 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 
 St. 
 
 y 
 
 St. 
 
 y 
 
 y 
 y 
 y 
 y 
 
 y 
 y 
 
 y 
 
 y 
 
 St. 
 
 y 
 
 y 
 y 
 
 y 
 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 
 (sf.) 
 
 y 
 
 St. 
 
 y 
 
 y 
 y 
 y 
 y 
 y 
 y 
 
 y 
 
 y 
 
 St. 
 
 y 
 
 St. 
 St. 
 
 y 
 y 
 
 y 
 
 y 
 y 
 
 St 
 
 y 
 
 y 
 
 y 
 
 y 
 
 y 
 
 y 
 
 y 
 y 
 
 y 
 y 
 
 St. 
 
 y 
 
 y 
 
 y 
 y 
 
 y 
 
 y 
 y 
 
 y 
 
 y 
 y 
 
 (n) 
 
 y 
 
 y 
 
 y 
 
 y 
 y 
 
 y 
 
 y 
 
 y 
 
 y 
 
 y 
 y 
 
 y 
 y 
 y 
 y 
 
 y 
 
 y 
 
 y 
 
 y 
 y 
 
 y 
 y 
 
 y 
 
 y 
 
 y 
 y 
 
 y 
 
 y 
 
 (n) 
 
 y 
 
 y 
 
 y 
 y 
 y 
 y 
 
 y 
 
 y 
 
 y 
 
 y 
 
 y 
 y 
 y 
 
 y 
 
 y 
 
 y 
 y 
 
 St. 
 
 y 
 
 y 
 y 
 
 St. 
 
 y 
 y 
 
 y 
 
 y 
 
 y 
 y 
 
 y 
 y 
 
 y 
 
 y 
 
 ly) 
 
 y 
 
 y 
 y 
 
 y 
 
 y 
 
 y 
 y 
 
 (y) 
 y 
 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 (y) 
 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 
 y 
 
 y 
 y 
 
 y 
 
 y 
 y 
 y 
 y 
 
 y 
 y 
 y 
 
 (y) 
 y 
 y 
 y 
 
 y 
 
 y 
 y 
 y 
 y 
 
 y 
 y 
 y 
 y 
 y 
 y 
 (y) 
 
 y 
 y 
 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 
 y 
 
 y 
 y 
 
 y 
 
 y 
 y 
 y 
 y 
 
 y 
 y 
 y 
 
 (yi 
 y 
 y 
 
 y 
 y 
 y 
 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 
 St. 
 
 y 
 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 
 y 
 y 
 y 
 y 
 y 
 y 
 
 y 
 
 y 
 y 
 
 y 
 y 
 y 
 y 
 y 
 
 y 
 y 
 
 y 
 y 
 y 
 y 
 
 y 
 
 y 
 
 y 
 
 y 
 
 y 
 y 
 y 
 
 y 
 y 
 
 y 
 
 y 
 y 
 
 y 
 y 
 y 
 
 y 
 
 y 
 y 
 y 
 
 y 
 
 y 
 y 
 
 y 
 
 y 
 y 
 y 
 
 ? 
 y 
 y 
 y 
 
 y 
 y 
 y 
 
 ? 
 y 
 
 y 
 y 
 y 
 
 y 
 
 y 
 
 y 
 y* 
 
 y 
 
 y 
 
 y 
 y 
 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 
 y 
 y 
 y 
 y 
 
 y 
 y 
 y 
 y 
 
 <J) 
 y 
 
 y 
 y 
 y 
 
 y 
 y 
 y 
 y 
 y 
 y 
 
 y 
 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 
 y 
 
 y 
 
 y 
 y 
 
 y 
 y 
 
 y 
 y 
 
 y 
 y 
 
 y 
 
 y 
 
 y 
 
 y 
 
 Y 
 
 y 
 y 
 y 
 y 
 
 y 
 y 
 y 
 
 y 
 y 
 
 y 
 
 y 
 
 y 
 y 
 
 (y> 
 
 y 
 
 y 
 
 y 
 y 
 (yj 
 
 y 
 
 J 
 
 6 
 3 
 
 3 
 5 
 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 
 y 
 
 y 
 y 
 y 
 y 
 
 y 
 y 
 y 
 
 y 
 
 y 
 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 
 y 
 y 
 
 y 
 y 
 y 
 
 y 
 y 
 y 
 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 
 y 
 
 nk 
 
 y 
 y 
 
 y 
 y 
 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 
 y 
 y 
 
 P. M. aud Fridays 
 
 When assistants free 
 
 y 
 y 
 y 
 y 
 
 y 
 
 y^ 
 
 y 
 y 
 y 
 y 
 y 
 
 y 
 y 
 
 y 
 
 y 
 y 
 y 
 
 y 
 y 
 
 y 
 y 
 
 y 
 y 
 y 
 y 
 
 y 
 y 
 
 >■ 
 
 y 
 y 
 
 y 
 
 y 
 y 
 
 y 
 y 
 y 
 
 y 
 
 y 
 y 
 y 
 y 
 
 y 
 
 y 
 y*' 
 
 y 
 
 y 
 y 
 
 ? 
 
 ? 
 y 
 
 y 
 y 
 y 
 
 y 
 
 y** 
 
 y 
 
 y 
 
 y 
 
 y 
 y 
 
 ? 
 
 ? 
 y 
 
 y 
 y 
 y 
 
 y** 
 
 n 
 u 
 
 y 
 
 n 
 n 
 
 y 
 
 u 
 
 y 
 y 
 
 n 
 
 X 
 
 ? 
 
 y 
 
 n 
 n 
 
 * 
 
 u 
 
 y 
 y 
 y 
 
 ? ; ,", 
 
 Sept. 19U biennial... "Brighter pupils should be promoted ...'.'..'. 
 
 Elizabeth, N. J. 
 Erie. Pfl. 
 
 Not stated 
 
 When can 
 
 Jefore and after session.. 
 
 Daily, P. M 
 
 When cau 
 
 ^"- ' "Report made two weeks before promotion. Reasons followed up Ueca'tur, III. 
 
 ]°^-; Supt requires explauation. "In a very few cases Manchester, N. II. 
 
 j„:; Williainsport, Pa. 
 
 .olle-priited::::::;:::::::::::::::::::;:;:::::::;::::::::::;:;:::::::;::::;:::-^ 
 
 Port Huron, Mich.... 
 
 y y 
 y n 
 n y 
 
 y n 
 
 y y 
 y y 
 y y 
 
 y 
 y 
 
 y 
 y 
 y 
 
 y 
 y 
 
 y 
 y 
 y 
 
 A. M., daily 
 
 \. M., daily 
 
 Not stated 
 
 X 
 
 rtuiaicrtiHUi, IN. V . 
 
 Columbus, Ind 
 
 Selma. Alu 
 
 None this year 
 
 Supervisors confer with teachers. *•" Varies " Columbus, Ind. 
 
 Fort Smith, Ark 
 
 Fresno. Cal 
 
 Help's period daily 
 
 Not stated 
 
 Joue printed *Not unless parents cau he made to see need of 'lioiiie study '.'.'.'.'.'.'.'.'..'.[ iForTsiuith, Ark. 
 
 Santa Rosa, Cal 
 
 Leadville. Colo 
 
 Danbnry, Conn 
 
 Waterbury, Cotin 
 
 Special teacher 
 
 •^ow 
 
 Dec. 1 
 
 ■^ow 
 
 Feb. i^ 
 
 Mow 
 
 It rather increases efficiency .......'....,............. 
 
 Not jointly !.!!!!!! 
 
 aanta Rosa, Cal. 
 [^eadville, Colo. 
 
 )uring and after session 
 leports to parents 
 
 Vaterbury, Conn, 
 whampaigu, 111. 
 Danville, 111. 
 MoHnc, 111. 
 3ttawu, 111. 
 Streator, 111. 
 40gausport, Ind, 
 Michigan City, Ind. 
 loone, la. 
 Uirlingtou, la, 
 
 ;:iiutou, la. 
 
 Dskaloosa, la. 
 
 Champaign, III 
 
 
 
 
 Cannot state degree of comparison. "•Some from the too regular fonus 
 
 
 n Oral Report I 
 
 
 
 
 n y 
 n y 
 X y 
 
 n y 
 y x 
 
 y 
 y 
 y 
 
 y 
 y 
 y 
 
 y 
 
 (vl 
 
 
 None this year *Supt. promotes. Teachers bring yenrly reports." Sticks rensoiisforfai'lure 
 
 
 When can 
 
 Loyansport, lud 
 
 Micbi^ian City, Ind... 
 
 
 ■^ow v.!!!!!!!!!! 
 
 
 Before and after session.. 
 
 liurlinL'ton Ii 
 
 Vhen can 
 
 
 No report. '*Viirii;s 
 
 
 
 jj 
 
 
 
 jj 
 
 
 
 X Oral Report 
 y X 1 X 1 X 
 
 y y 1 y 1 y 
 
 
 *^one printed 
 
 Larcelv 
 
 PittsbufR, Kans 
 
 
 
 Pittsburg, Kaus. 
 
 
 
 
 
 
 Vlar'.', 1911;:::;:;;:;: 
 
 
 
 Chicopee, Mass 
 
 y 
 
 y X 
 
 y y 
 y y 
 y y 
 
 y 
 y 
 
 y 
 y 
 y 
 
 Not stated 
 
 
 
 Ihicopce, Muss. 
 
 nk 5586 
 
 
 *Y M C a' school **Not without stromrer teaching force' 
 
 
 All times 
 
 
 
 Melnse Mass 
 
 nk 
 nk 
 nk 
 
 5 
 -n| 
 
 nk 
 nk 
 nk 
 3 
 nk 
 nk 
 
 91 
 
 nk 
 
 nk 
 
 nk 
 nk 
 
 nk 
 nk 
 
 nk 
 nk 
 nk 
 
 nk 
 2517 
 1143 
 1721 
 
 866 
 nk 
 nk 
 
 vast ^ hour daily 
 
 
 
 
 
 
 
 
 SouthbridKe. Mass. . . 
 
 
 
 
 Southbridge, Mass. 
 
 
 
 
 
 Grand Rapids, Mich.. 
 
 Muske^au, Mich 
 
 Owosso. Mich, ... 
 
 Traverse City, Mich. . 
 
 Winona, Mich 
 
 VicksburH. Miss 
 
 y n 
 y n 
 y n 
 y n 
 y n 
 
 y 
 y 
 
 y 
 y 
 
 
 
 
 Grand Kapids, Mich. 
 Muskegan, Mich. 
 Dwosso, Mich. 
 Traverse City, Mich. 
 
 
 uly, 1910 
 
 Mow 
 
 uly or Sept 
 
 Mone printed 
 
 •" Mostly " 
 
 ^Depends on individual 
 
 *Supl. sees each 
 
 )aily class, 
 
 minutes tlaily 
 
 , 
 
 ^ », .... 
 
 yicksb..rt,.Miss. 
 
 Jefferson City. Mo,,.. 
 
 Sprin^'field, Mo 
 
 Great Falls, Mont 
 
 Concord, N. H 
 
 2836 
 
 y 
 
 y 
 y 
 y 
 
 nk 
 
 y 
 y 
 y^ 
 
 y 
 
 nk 
 
 y 
 
 y 
 y 
 y 
 
 y 
 y 
 
 y 
 y 
 
 nk 
 
 y 
 
 y n 
 
 n y 
 
 y y 
 
 y 
 y 
 
 y 
 y 
 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 
 y 
 y 
 y 
 
 y 
 y 
 y 
 y 
 
 y 
 y 
 
 y 
 
 y 
 
 y 
 
 y 
 
 ?; 
 
 y 
 y 
 y 
 y 
 
 y 
 
 y 
 y 
 y 
 
 y 
 y 
 y 
 y 
 
 y 
 y 
 
 y 
 
 y 
 y 
 y 
 y 
 
 y 
 y 
 
 y 
 
 y 
 y 
 y 
 
 y 
 y 
 
 y 
 y 
 
 y 
 y 
 y 
 y 
 y 
 y 
 
 y 
 y 
 y 
 y 
 y 
 y 
 
 y 
 y 
 
 y 
 
 y 
 
 y 
 y 
 
 y 
 
 y 
 y 
 y 
 
 y 
 
 y 
 y 
 y 
 
 y 
 
 y 
 
 y 
 y 
 y 
 y 
 y 
 
 y 
 y 
 y 
 
 y 
 y 
 y 
 
 ? 
 
 y 
 y 
 y 
 y 
 
 y 
 
 y 
 y 
 y 
 
 y 
 
 y 
 
 y 
 y 
 y 
 y 
 y 
 y 
 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 y 
 
 y 
 y 
 y 
 y 
 y 
 
 y 
 y 
 
 y 
 
 y 
 
 y 
 y 
 
 y 
 y 
 
 y 
 
 y 
 
 y 
 y 
 y 
 
 y 
 
 y 
 y 
 y 
 y 
 
 y 
 y 
 
 y 
 y 
 
 y 
 y 
 y 
 
 y 
 
 y 
 y 
 
 nk 
 
 nk 
 3 
 
 y 
 y 
 y 
 y 
 
 V 
 
 y 
 y 
 y 
 y 
 
 y 
 
 y 
 y 
 y 
 y 
 y 
 
 y 
 y 
 y 
 y 
 y 
 
 y« 
 
 y 
 
 y 
 
 y 
 
 y 
 y 
 y 
 y 
 
 nk 
 
 y 
 y 
 y 
 y 
 
 y 
 
 y 
 
 y 
 
 y 
 y 
 
 y 
 y 
 y 
 
 y 
 y 
 
 When can 
 
 D.iilv 
 
 y 
 ■? 
 y 
 
 y 
 y 
 
 y 
 
 y 
 
 J? 
 y 
 
 y 
 
 y 
 y 
 
 y 
 
 y 
 y 
 
 y 
 y 
 
 None printed 
 
 
 jpriiiKfielil, Mo. 
 
 
 
 
 
 
 
 
 
 
 Dover. N, H. 
 
 Montclair. N. J 
 
 Johnstown, N. Y 
 
 Kingston, N. Y 
 
 Mt. Vcruon. N. Y ... 
 
 Ashevillc, N. C 
 
 New Bern, N. C 
 
 3u6o — 
 nk nk 
 
 2458 2496 
 nk 3948 
 
 2129 2289 
 nk nk 
 
 nk — 
 
 49S6 - 
 nk nk 
 1354 - 
 993 , 34 
 31SS — 
 1045 — 
 
 
 
 
 
 Moutclair, N. J. 
 
 y y 
 
 y n 
 
 X y 
 
 y y 
 y n 
 y y 
 y 1 
 y y 
 
 y 
 y 
 
 y 
 
 y 
 y 
 
 y 
 
 y 
 
 Irregularly by substitute 
 
 
 
 
 
 
 Kingston, N. Y. 
 
 Aft hooi ' 
 
 
 
 Mt. Vernon, N. Y. 
 
 
 
 
 Ashevillc, N. C. 
 
 
 
 
 New Bern, N. C. 
 
 nail 
 
 
 
 Akron, 0. 
 
 Newark, O 
 
 Springfield, O 
 
 Steubenvillc, O 
 
 Columbia, I'll 
 
 T^ t-,"p 
 
 fc ::;;:::. 
 
 
 Newark, 0. 
 
 ny 
 
 
 Springficlil, O. 
 
 
 
 
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 n Oral Report 
 
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 y Oral Report 
 
 
 
 
 Columbia, Pa. 
 
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 None printed 
 
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 Danville, I'a. 
 
 
 
 ^ 
 
 Hazletoii, Pa. 
 
 Phoenixville, Pa 
 
 
 
 Phoenixville, Pa. 
 
 Daily late F. M 
 
 None printed 
 
 
 Warren, Pa. 
 
 Williamsburg, Pa ... . 
 Wilkes-Barre, Pa.... 
 
 Crauston, R. I 
 
 Providence. R. I 
 
 Woonsocket, R. I... 
 
 Columbia, S. C 
 
 Denisou, Tex 
 
 Palestine, Tex 
 
 Walla Walla, Wash. 
 Bellingham, Wash. . 
 Oslikosh, Wis 
 
 nk 
 
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 Columbia, S. C. 
 
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 Denisou, Tex. 
 
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 145s 
 
 Aug. II, semi-annual 
 
 
 Walla Walla, Wash. 
 
 
 
 
 "x 
 
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 State Normal School has model school where delinquents may attend. . 
 
 
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 ethods 
 
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 ucing 
 
 lon-prc 
 
 motion 
 
 Copies of this t 
 
 able, 5c. in stamps. For extra eopies of pamphlet 
 
 : "How Many, When Do, Why Do Children Fail", Btni 5o. (or 1, 50o. for 20, $2.00 for 100. 
 
 3ureau of Municipal Research 
 261 Broadway, New YorU 
 
II. Forms used and questions asked by various city superin- 
 tendents 
 
 1. In Kearney, N. J., Superintendent Dressel requires : 
 
 Name. 
 
 Age. 
 
 Grade. 
 
 Was he promoted to your grade conditionally? 
 
 Power of application. Best in what subjects? 
 
 In what subjects is he the weakest? 
 
 Is he capable of better work in these subjects? 
 
 If not promoted would he retain his interest and ambition? 
 
 Has he the mental power to do advanced work? 
 
 Did you interview the parents? 
 
 Was the pupil informed that he would fail of promotion if he did 
 not improve? 
 
 State any physical defects which may have interfered with pupil's 
 progress. 
 
 Did you take into consideration these defects when his case was 
 decided? 
 
 State any other possible cause for his defective work . 
 
 Note ^hat pupils are not to be held back in a grade — 
 If they have the ability to do advanced work. 
 If their standing is good in English, reading and spelling. 
 If they fail only in any one subject. 
 
 2. In Hyde Park, Mass., three different promotion records 
 are kept; (a) double promotion; (b) not promoted; and (c) 
 promoted conditionally. For all three classes general questions 
 are asked as to name, address, age, grade, repetition of previous 
 grades if any, general health, sight, hearing, conditions if any 
 when pupil started grade. For pupils not promoted these addi- 
 tional questions are asked : 
 
 Number of days absent during current school year. 
 
 In what subjects is he deficient? 
 
 To what causes are the deficiencies due? 
 
 How many interviews have you had with his parents? 
 
 How many supplementary reports have you sent to his parents? 
 
 For pupils promoted conditionally, these questions are 
 added to the above: 
 
 Do you think he can do the work of the next grade? 
 
 Is he to study during vacation? For examination? 
 
 Is he physically able to stand this? 
 
 3. In Cleveland, Superintendent Elson's statistical tables 
 contain these headings : 
 
 a By Grade : 
 
 Number promotions and number non-promotions 
 from entering grade first time 
 from previously entered. 
 Percent of promotions and non-promotions 
 on number remaining 
 on total registration 
 b Distribution of pupils by studies and failures in each by grades. 
 
 Per cent, of failures on enrollment. 
 c Distribution of non-promotions by ages and causes. 
 
 Causes : Irregular attendance, physical defects, incapacity, personal 
 
 illness, indifference. 
 Per cent, of all non-promotions due to each cause, 
 d Distribution of non-promotions by ages and grades. 
 
 [3] 
 
4- In Oakland, Calif., a card printed on two sides is used 
 as here reproduced: 
 
 NON-PROMOTION REPORT 
 Name 
 
 Age 
 
 Grade 
 
 CITY OF OAKLAND. CAL. 
 School 
 
 No. of Weeks in grade 
 
 5ths done 
 
 DatQ of Examination 
 
 Record. Write F for failure ; P for passable 
 
 ; S for satisfactory. 
 
 
 
 
 
 
 
 
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 11 
 
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 What subjects were taken in higher or lower grade? 
 
 Wh.a't special help has been given pupil ? 
 
 Previous Promotion Record 
 
 Health 
 
 (over) 
 
 (Reverse side) 
 
 What has been done to secure the co-operstion of the parents to prevent failure' 
 
 Underline probable cause of failure: Irregular attendance, physical defects, personal ill- 
 ness, incapacity, immaturity, indifference. 
 
 Reason assigned by pupil for failure 
 
 Remarks by teacher 
 
 Remarks by Principal 
 
 File one «opy with the Superintendent and one with 
 the Principal within five days after date of promotion 
 
 [4] 
 
 Date filed 
 
In addition to this individual non-promotion report, a 
 class promotion record card is kept calling for the following 
 data from each teacher: 
 
 Number promoted before examination or class promotion. 
 
 Number promoted at examination. 
 
 Number present during last month not promoted. 
 
 Number who have left and not returned since beginning grade. 
 
 Number who were more than 21 weeks in grade. 
 
 Date class began the grade (give month, day and year). 
 
 Date of promotion (give date of final examination). 
 
 Number of school weeks from date of beginning grade to date o£ 
 promotion. 
 
 Name of teacher of preceding grade. 
 
 Age distribution of promoted pupils at time of promotion. 
 
 Names of pupils not promoted, age, fifths done by each and probable 
 cause of failure. 
 
 5. In Indianapolis, the blanks apportion failures among 
 the following causes: 
 
 a Slowness, dullness, inattention, idleness. 
 
 b Mental defect. 
 
 c Physical defect. 
 
 d 111 health. 
 
 e Irregular attendance. 
 
 f Wrongly placed. 
 
 In addition facts are given for: 
 
 g Back in reading. 
 h Back in arithmetic. 
 
 In the different grades the proportion held back for slow- 
 ness, etc., varies from 1.5% in 8-A to 9% in 5-B. Of 23,492 
 children in white schools, 22,(X)0, or 9.36% were held back as 
 reported in April, 1910. We give herewith the distribution 
 by half grades (A in New York = B in Indianapolis) of the 
 total held back in Indianapolis reported in April, 1910, and in 
 New York in February, 1910: 
 
 Percent Held Back. 
 
 Grade 
 
 New York 
 
 Indianapolis 
 
 Grade 
 
 New York Indianapolis 
 
 I A 
 
 32.0 
 
 3-2 
 
 5 A 
 
 17.0 8.1 
 
 I B 
 
 17.7 
 
 S-9 
 
 5 B 
 
 17-0 6.8 
 
 2 A 
 
 16.9 
 
 8.3 
 
 6 A 
 
 17-4 7-8 
 
 2 B 
 
 17.1 
 
 7-2 
 
 6 B 
 
 17-2 4-9 
 
 3 A 
 
 17.2 
 
 9-7 
 
 7 A 
 
 18.2 4.1 
 
 3 B 
 
 15-7 
 
 8.3 
 
 7 B 
 
 16.S 4-3 
 
 4 A 
 
 IS-2 
 
 9.2 
 
 8 A 
 
 16.8 3. 
 
 4B 
 
 17.2 
 
 7.8 
 
 8 B 
 
 10.9 .7 
 
 6. In Maiden, Mass., in addition to the Doubtful Promo- 
 tion Blank already issued by us — Efficient Citizenship No. 361 
 — the parent receives a quarterly report on studies, effort and 
 behavior, including sessions absent, times tardy and times dis- 
 missed. For the quarters ending December 24 and April 15 
 the "prospect of promotion" is stated. On the reverse of this 
 report blank is the following message to parent or guardian: 
 
 To Parent or Guardian. 
 
 This report sheet has been authorized by the School Committee as one 
 method of informing parents of the progress of their children in school. It 
 is believed that a statement by the teacher in plain English will prove more 
 satisfactory than the use of the letters E, G, F, and U. 
 
 Other means of informing parents of the progress of their children are 
 the following: 
 
 Supplementary Reports. — Whenever a pupil falls behind in his studies 
 to such an extent as to endanger his promotion, or whenever his attendance 
 or conduct is unsatisfactory, the parent will be notified immediately by means 
 of a special report. (This is regarded as a distinct pledge made to the 
 parent. Failure to notify is regarded as a breach of faith on the part of the 
 teacher.) If no such supplementary report is received, the parent may rest 
 assured that his child is making satisfactory progress and will be duly 
 promoted. 
 
 [5] 
 
Inspection of Pupils' Work. — That parents may have an opportunity to 
 judge for themselves of the quality of the work done by their children, 
 written matter will, so far as practicable, be sent home for inspection. Care- 
 ful examination of this work will aid the parents in judging th'e ability and 
 effort of their children and will prove a source of encouragement to both 
 pupils and teachers. 
 
 Personal Visitation. — No form of report card, and no inspection of the 
 written work of the pupils, can take the place of a personal visit. Parents 
 are urged to visit the school frequently, that they may observe the regular 
 work and make personal acquaintance with the teachers who have charge of 
 their children. 
 
 7. In Elizabeth, N. J., Superintendent Clement issues a 
 circular letter to teachers demanding the real reason for non- 
 promotion : "For instance, it is not enough to report 'will not 
 study' ; absence is not a reason unless the cause of absence is 
 given." 
 
 8. In New Bern, N. C, Superintendent Craven's report to 
 the board, to teachers and to the public of failures in 1910 con- 
 tains the following explanation as to 242 (31.5%) left over 
 pupils based upon "careful investigation" : 
 
 Tj or 32.8% were absent 20% or more of the entire session. 
 
 40 or 16.5% moved elsewhere, many of them entered school. 
 
 49 or 20.2% were slow and undeveloped pupils, largely in primary grades. 
 
 30 or 12.4% were lazy, careless and indifferent, did not care to learn. 
 
 (These pupils if awakened and inspired should have been 
 promoted.) 
 20 or 8.3% admit openly that they did not study. (These pupils were 
 largely in 6th and 7th grades and should have been interested 
 and so should have been promoted.) 
 S or 2.6% went to work. 
 
 5 or 2.6% came from ungraded country schools. (These pupils were pre- 
 pared in some of their work and very much behind on 
 other subjects, especially mathematics.) 
 
 2 or .8% died. 
 
 3 or 1.2% were left over on account of bad health. 
 
 II or 4.5% were left over on account of defective eyes, ears, etc. 
 
 9. In Northampton, Mass., Superintendent Congdon "does 
 not believe in waiting until end of the year before asking the 
 teachers for a report on pupils who are not passing," but re- 
 quires a regular monthly report calling for a "discussion of 
 the case of each pupil who is not doing passing work, giving 
 reason for failure, telling what special effort is made to improve 
 the pupil's work, and what has been done to make the parents 
 acquainted with the facts." 
 
 10. In Decatur, 111., Superintendent Wilson requires that 
 all teachers submit to him two weeks before promotion time 
 a tentative promotion report containing the name, age, terms 
 in grade and standing of all pupils, plus reasons where pupils 
 are tentatively reported for failure or "conditional pass." 
 
 11. In Pottstown, Pa., Superintendent Rupert writes that 
 teachers give from one to two hours daily to work with 
 individual pupils. At the end of the third month the super- 
 intendent examines all scholarship records, and through con- 
 ferences with teachers seeks to determine the causes and apply 
 the proper remedies. The last two weeks of the year, morn- 
 ing sessions only are held, and the afternoons are devoted to 
 the special instruction of pupils who are not quite up to the 
 standard of promotion. Parents are asked through a special 
 letter to cooperate by encouraging children to attend these 
 classes. 
 
 [6] 
 
12. In New York City, Superintendent Maxwell said to the 
 school principals and superintendents on January 9th : 
 
 Promote every child whose class teacher recommends on 
 term marks; personally investigate each case of every child 
 who is not recommended and examine to see whether he may 
 not be promoted. 
 
 Require in the case of each child not recommended for 
 promotion a statement from his teacher in writing as to reasons 
 why he is not recommended. It will not do to accept such a 
 statement as 'deficient in studies.' 
 
 A full statement from the teacher is preferable to having 
 her check off a list of reasons submitted by the principal. 
 While not lending itself to statistical arrangement, it does cause 
 the teacher to think why she has not recommended a child for 
 promotion. 
 
 13. This rule is illustrated by the report of a teacher of 
 3-B grade in Great Falls, Mont., who replies to the question, 
 cause of failure in your judgment: 
 
 F. B. — Absent five weeks with scarlet fever. 
 
 A. R. — Did not enter school until the middle of October. 
 
 G. B.— Deficient. 
 
 M. H. — Entered in November from Lewiston and was not up to grade. 
 D. H. — Conditioned into 3-B from 2-A I very weak 
 M. H. — Conditioned into 3-B from 2-A > pupils. 
 
 14. For other printed blanks which demand causes of 
 failure of individual pupils, write to school superintendents of 
 New Bedford, Mass., Great Falls, Mont., Cripple Creek, Colo., 
 Mt. Vernon, N. Y., Williamsport, Pa., Council Bluffs, la., and 
 Providence, R. I. 
 
 15. For samples of full newspaper reports, with causes, 
 write to the school superintendents of Woonsocket, R. I. and 
 Waterbury, Conn. 
 
 16. For bulletins already issued by this Bureau, repro- 
 ducing the blanks used in Marlborough and Maiden, Mass., 
 address Efficient Citizenship Nos. 404 and 361 respectively. 
 For Montclair's letter to parents, address Efficient Citizenship 
 No. 391 ; for Williamsport's attention to doubtful pupils, ad- 
 dress Efficient Citizenship No. 368; for data contained in 
 Cleveland's (1909) school report, address Efficient Citizenship 
 No. 226. 
 
 III. Extracts from letters addressed to the Bureau of Muni- 
 cipal Research and from official reports 
 
 I. From Decatur, 111., Superintendent Wilson writes: 
 
 The following questions should be asked by teacher, prin- 
 cipal and superintendent before non-promotion : 
 
 Was the child in ill health? 
 
 Was he hampered by physical defects? 
 
 Did home conditions tax his energies and cause him to fail 
 to get needed rest at night, deprive him of sufficient food and 
 detain him from school? 
 
 Was he growing rapidly so that his energy and vitality were 
 all consumed here? 
 
 [7] 
 
Was he with pupils so much younger and so much different 
 socially that his failure to adjust to their atmosphere and spirit 
 handicapped him? 
 
 Was the room so overcrowded that he did not receive in- 
 dividual aid? 
 
 Was he in a part time school? 
 
 Was he with a teacher who was incompatible? 
 
 Was he put at a disadvantage by changing schools or teach- 
 ers two or three times? 
 
 Are you absolutely certain the requirements of the course 
 of study and the standards for promotion are ideally correct? 
 
 Is his threatened failure due to your general estimate of his 
 ability or does it result from his standard in percentage from 
 a series of examinations imposed from above? 
 
 2. From Detroit, Mich., Superintendent Martindale attri- 
 butes a decrease in the percentage non-promoted in thirteen 
 years from 25^ to 8% to the system of promoting children 
 solely upon their ability to do advanced work; and further at- 
 tributes the following good results to this method: 
 
 The establishment of kindergartens. 
 
 The lengthening of the term of normal training for teach- 
 ers. 
 
 The raising of the standard required for the appointment 
 of teachers. 
 
 The division of the city fnto ungraded districts and the es- 
 tablishment of an ungraded school in each district. 
 
 The establishment of special school for the deaf, back- 
 ward and other children. 
 
 Medical examination of pupils. 
 
 The appointment of a child study committee to investigate 
 all conditions surrounding pupils and especially to look into the 
 physical and mental conditions of special cases. 
 
 The introduction of manual training and industrial training. 
 
 3. New Bedford, Mass., Cripple Creek, Colo., and Provi- 
 dence, R. I., never hold a pupil more than two terms in a 
 grade, hoping that the new work, new teacher and other en- 
 couragements may help the child to advance normally. Su- 
 perintendent Maxwell reports that "hundreds have been held 
 in one grade two, four, six terms." 
 
 4. In Rutland, Vt., 90^0 of the children attending four 
 weeks of "catch up" vacation school were promoted, "and about 
 90% of those thus promoted made good in the advanced grade 
 the following year. In this way very few of our pupils in the 
 5th grade and above really fail in doing one year's work." 
 
 5. Waltham, Mass., pursues a policy of daily promotion 
 and transfers a child without delay to the class in which he 
 can do the best work. 
 
 6. In Cleveland, Ohio, Superintendent Elson has recently 
 adopted three promotion periods a year instead of one ; (a) to 
 save children who are not well started in the grade from being 
 a drag in the class for the whole year ; (b) to reduce the amount 
 of work repeated by those failing; (c) to enable the bright 
 child to advance more rapidly. 
 
 [8] 
 
7- In Fort Smith, Ark., Superintendent Kuykendale tries 
 through conferences with parents to eliminate much of the ir- 
 regularity of attendance. In a study of backward children ex- 
 tending over several years, he found that late entrance, fre- 
 quent moving and similar causes caused two-thirds of the 
 retardation. 
 
 8. As has already been noted, 46 superintendents of the 
 76 answering our inquiry, plan to discuss non-promotion in 
 their next reports. Of the 135 school reports for 1908-1909 
 and 1909-1910 which the Bureau has at its disposal, only 35 
 give any figures on the extent of non-promotion, or state 
 what definite steps are being taken to study the problem and 
 prevent non-promotion. In addition to the report of Super- 
 intendent Elson of Cleveland (1909) already mentioned, sug- 
 gestive material is to be found in the following reports : 
 
 a Promotion Tables 
 
 Tables of promotions and failures may be found in the 
 reports of New Britain, Conn. (1909) ; Meriden, Conn. 
 (1910); Moline, 111. (1910) ; Michigan City, Ind. 
 (1910) ; Owensboro, Ky. (1909); Medford, Mass. 
 (1909); Melrose, Mass. (1909); Maiden, Mass. 
 (1909); Cincinnati, Ohio (1909); Dover, N. H. 
 (1909); Johnstown, Pa. (1910) ; Salt Lake City, 
 Utah (1909); Barre, Vt. (1909); Marinette, Wis. 
 (1910); Baltimore, Md. (1909); Harrisburg, Pa. 
 (1909); Kansas City, Mo. (1910); 
 
 Philadelphia, Pa. (1909). gives the per cent, promoted 
 for the years 1905-1909 and the number and per cent, 
 in grade from 20 to 29 months, 30 or more months. 
 The per cent, promoted in 1907 was 69.3 ; in 1909, 
 81.5. The per cent, of the number in grade 20 or 
 more months in 1907 was 12.7; in 1909, 3.9. Super- 
 intendent Brumbaugh attributes this very "gratify- 
 ing reduction of the number of repeaters in the 
 grades to (i) the compilation and publication of dis- 
 trict and city reports, and (2) to the intelligent 
 studies of these and the underlying conditions that 
 have been made by the principals and the district 
 superintendents." 
 
 Chicago, 111. (1910), gives tables including the number 
 promoted and per cent, of promotions for each school. 
 Regarding retardation. Superintendent Ella Flagg 
 Young says : "With a clearer understanding of the 
 relation which should always obtain between the 
 principal and each and every pupil in the school, there 
 will be a much smaller problem for solution under 
 the head of retardation." 
 
 Manchester, N. H. (1909), gives tables of promotions 
 and failures for each term and purposes "to pro- 
 
 [9] 
 
ceed systematically and embody in the annual re- 
 port the records (which shall include causes) of all 
 such (failures), that the public may be informed." 
 
 b Recording Causes 
 
 In addition to tables of figures, the following reports 
 give the causes of non-promotion and the number or 
 per cent, of pupils failing under each cause: Moline, 
 111. (1910) ; Melrose, Mass. (1909); Concord, N. H. 
 (1910) ; Williamsport, Pa. (1910) ; Columbia, S. C. 
 (1910). 
 
 c Special Studies 
 
 Special studies of non-promotion and its causes were 
 made m Moline, 111. (1910); Williamsport, Pa. 
 (1910) ; Columbia, S. C. (1910) ; Meriden, Conn. 
 (1910) ; Lowell, Mass. (1909). 
 
 d Group Systems 
 
 Fresno, Cal. (1910) reports favorably on the plan of 
 dividing classes into major and minor sections in 
 each subject, by which more individual attention 
 may be given to the minor sections. Another suc- 
 cessful plan is that of arranging sections on the basis 
 of pupils' general capabilities and of passing them 
 along as rapidly as possible. 
 
 Baltimore, Md. (1909), reports the introduction of the 
 group system by which, among other benefits, are ob- 
 tained (i) better distribution of pupils; (2) better 
 gradation of pupils with possibility of rating; (3) 
 special classes. Pupils advance at varying rates of 
 speed and may be promoted at any time. 
 
 Cambridge, Mass., and Portland, Me. (both 1909), 
 contain descriptions of their respective plans for the 
 gradation and promotion of pupils by which pupils 
 are divided into different groups and divisions ad- 
 vancing at varying rates of speed throughout the 
 entire course. 
 
 e Individual Help 
 
 New Orleans, La. (1910), Minneapolis, Minn. (1909), 
 Mt. Vernon, N. Y. (1910), Glens Falls, N. Y. (1910), 
 Dover, N. H. (1909), Concord, N. H. (1910), West 
 Chester, Pa, (1910), report that individual attention is 
 given during the year to pupils in danger of being 
 held over. 
 
 Pasadena, Cal (1909), gives help by (i) special stud}; 
 rooms in charge of a carefully selected teacher; (2) 
 alternation of class recitation and study periods so as 
 to use study time for pupils needing special help; 
 (3) attention to individuals by the examination by 
 the health department. 
 [10] 
 
San Francisco, Cal. (1909), has ungraded classes for 
 both individual and class instruction of weak pupils. 
 Pupils weak in one subject are coached in that sub- 
 ject; pupils weak in all subjects are transferred to 
 the ungraded room. 
 
 Marinette, Wis. (1910), states that the teachers must 
 supply Superintendent Landgraf at the end of the 
 year with a list of all pupils, age, physical condition 
 and causes of failure. 
 
 f Other Reports 
 
 Watertown, N. Y. (1910), reports promotion by subject. 
 Harrisburg, Pa. (1909), devotes some space to stating 
 that the only basis of promotion should be the ability 
 of the child to do the next year's work and not "the 
 mere fact of having covered a fixed amount of sub- 
 ject matter in the school room." 
 
 Columbus, Ga. (1909), gives the returns of an investi- 
 gation by Superintendent Gibson on the relative 
 merits of annual and semi-annual promotions and 
 the division of classes into sections. Extracts from 
 letters of 32 superintendents are quoted. 
 
 Recent Progress in New York City 
 
 Until uniform and adequate records and reports are in 
 general use, the influence of a few large cities and of progres- 
 sive small cities upon educational methods will be dispropor- 
 tionate to the merit of their contributions. The large cities 
 will influence because of numbers ; the small cities will fail to 
 influence for lack of numbers. Even after it is as easy to learn 
 about 750,000 school children in small cities as about 750,000 
 in New York City, the experience of the greatest public school 
 system in the world will continue to be of interest and value 
 to all educators. 
 
 The following is a digest of extracts from the report of 
 New York City's superintendent of schools for the year ending 
 July 31st 1910: 
 
 As far as the schools of New York City are concerned, I 
 have finally settled the question as to the chief cause .... of 
 retardation .... late entrance to school. Other causes of re- 
 tardation there are, however, for which the school must accept 
 its share of blame. To determine what these causes are, and if 
 possible to find remedies, I appointed eight committees of (40) 
 principals early in the school year to study the whole question 
 The eight committees were in substantial accord in stating that 
 the following are the chief causes of failure on the part of 
 pupils to secure regular promotion from grade to grade. The 
 causes, however, are not stated in any order of intensity: 
 
 Irregular Attendance — Due to poor home conditions; loose- 
 ness of parental control; ignorance of parents; lack of oppor- 
 tunities for home study; poverty of home requiring pupils' as- 
 sistance; sickness of other members of the family; lack of proper 
 clothing; feeble health of individual pupils; poverty of surround- 
 ings. 
 
 [Tl] 
 
Truancy — Which is attributed by the principals to three 
 chief causes: Lack of support by the courts in enforcing the 
 Compulsory Education Law; lack of co-operation of parents; 
 and lack of a sufficient number of attendance officers. 
 
 Ignorance of the English Language, due to foreign birth 
 and to the fact that English is not the language of the home. 
 
 Late Entrance into School, due to two causes: The pres- 
 ence of immigrant children, and the fact that many children are 
 sent to private schools before they enter the public schools. 
 
 Transfer from School to School — Such transfers involve loss 
 of time owing to variations in the interpretation of the course 
 of study and syllabuses, and in following different sequences of 
 topics in different schools, and frequently to delay in entering 
 school after removal from one school district to another school 
 district. 
 
 Physical Defects — These are caused or intensified by lack of 
 medical care; nervous troubles; adenoid growths and enlarged 
 tonsils; defective eyes, ears and teeth; malnutrition; physical 
 precocity; lack of play and exercise; unsanitary conditions. 
 
 Sluggish Mentality — Sometimes this feature takes the form 
 of positive mental defect and sometimes it characterizes pupils 
 as slow in receptivity and response. Sometimes it takes the 
 form of moral defects, such as dishonesty, lying and cheating, 
 which are intensified by improper reading, the following of bad 
 " examples, and petty defiance of law in the streets. 
 
 Excessive Size of Classes, which prevents teachers giving 
 necessary individual instruction. 
 
 Prolonged or Frequent Absences of Teachers, during which 
 their classes are taught by substitutes who are sometimes in- 
 different and sometimes inefficient. 
 
 Part-Time, which prevents pupils from doing the work of 
 the lower grades thoroughly. 
 
 Varying Standards of Rating Pupils — Some principals and 
 teachers adopt too high a standard; some too low a standard. 
 
 Inefficient Teaching, due to teachers' talking and doing too 
 much for their pupils; lack of thoroughness; obsolete aims and 
 methods in teachmg on the part of some of the older teachers; 
 occasional lack of the power of discipline; neglect of opportunity 
 afforded by the study period to teach children how to study. 
 
 Improper Methods of Promotion, due to unnecessarily 
 holding back pupils; not making promotions with sufficient 
 frequency; and to differing standards of promotion. 
 
 The anaylsis made by these principals of the causes of 
 retardation in their various schools showed that the two chief 
 factors are personal illness on the part of pupils and late en- 
 trance into school. 
 
 The remedies suggested by the various committees were 
 many and heterogeneous. There seemed to be little agree- 
 ment as to what, if any, changes in our system should be made 
 in order to eliminate as far as possible the admitted evils of 
 retardation. In order to obtain a more definite result, I 
 classified the various suggestions and submitted them (April 
 i8, 1910,) in the form of direct questions to a committee con- 
 sisting of the chairmen of the original committees. 
 
 On pages 82-86 are found the committee's answers to the 
 twelve following questions : 
 
 Is is advisable to divide the matter in each subject of 
 study in each grade of the public schools and topics to be taken 
 up in the same order in all schools? 
 
 Should a uniform method of rating pupils in studies and a 
 uniform standard for promotion be formulated? 
 
 How often should final or general promotions be made? 
 
 [12] 
 
What rules should be adopted to determine the number of 
 terms a pupil may be held in any one grade? 
 
 Is is advisable to modify the course of study for classes 
 of retarded or backward pupils? What subject, if any, or what 
 portions of subjects if any, should be omitted from the present 
 course in such classes? 
 
 Is it advisable to organize special classes for the rapid 
 advancement of particularly bright pupils? 
 
 Is is desirable to make a distinction between the graduates 
 of the elementary schools who may be admitted to the high 
 school and the pupils who have passed through all grades with- 
 out gaining enough proficiency to be entitled to a diploma? 
 
 Is is advisable to employ assistant teachers to coach back- 
 ward pupils? 
 
 Should algebra and inventional geometry be eliminated 
 from the course of study in the elementary schools? 
 
 Should science be eliminated from the 7th and 8th grades 
 of the elementary schools? 
 
 How may enthusiasm be stimulated and the will to work 
 developed in indifferent pupils? 
 
 Should foreign languages be eliminated from the course of 
 study of the 8th year of the elementary schools? 
 
 In Appendix A to the superintendent's report will later 
 appear valuable suggestions written by Associate City Super- 
 intendent Gustav Straubenmiiller. 
 
 On non-promotion the city superintendent writes : "It is 
 quite manifest that more pupils should be promoted each term 
 than are promoted at present, and that more should be done 
 than is now done for the not-promoted." (See earlier reference 
 to written explanation by teachers and to presumption that a 
 child shall pass if able to do the next term's work — page 7.) 
 
 Attention is called to the fact that promotions were more 
 liberal in June than in January; that the number of over age 
 children was smaller in June than in January, and that the 
 promotion of this particular class of pupils was more generous. 
 Poor teaching is classed with absence, illness and indifiference 
 among the reasons why "there will always be a considerable 
 percentage of pupils who should not be promoted." 
 
 The Danger of Acceleration 
 
 Writing to the school editor of the New York Globe, a 
 Bronx principal has protested that the more generous promo- 
 tion of pupils in June was too generous and that large numbers 
 of children were being advanced to do work for which they 
 were unprepared. 
 
 The percentage of the promotions at schools has been 
 mysteriously and suddenly increased . Instead of investigating 
 the cause of non-promotion and finding faults and weaknesses 
 in the course of study, methods of teaching, in over-crowded 
 classes, instead of finding a remedy for these evils, wholesale 
 promotions were introduced merely to raise the percentage 
 figures mechanically. If the number of promotions is relatively 
 small the wise thing to do is to find out why they are small. 
 To promote more pupils whether they are fit or not is a folly 
 which can only be compared with that of the ostrich who hides 
 his head in the sand so that no one can see it 
 
 [13] 
 
At the meeting of the New York City Teachers' Associa- 
 tion, January 17, 191 1, the following resolution was adopted: 
 
 Resolved, that it is the sentiment of this association that 
 the chief cause of retardation and its concomitant of over-age 
 pupils in the elementary schools is the overburdened course 
 of study. 
 
 That the teachers of our schools work harder now than 
 ever before to secure the advancement of their pupils. 
 
 That any attempt to force promotions on an inflated per- 
 centage can only result in accentuating the difficulty and that 
 the resulting deterioration in the moral fibre of principals, 
 teachers and pupils from such evasive and dishonest methods 
 must bring consequences far more disastrous to the schools 
 than any now resulting from retardation. 
 
 Concrete illustrations of acceleration were given in a 
 New York Times editorial, January 13th, 191 1 : 
 
 A despairing teacher has brought to our attention the work 
 of some forty boys of the 8A grade who were asked to tell 
 in their own words the substance of Goldsmith's 'Deserted 
 Village' and Burns' 'A Man's a Man for a' That.' The following 
 samples are fairly typical : 
 
 FOR A' THAT AND A' THAT 
 See that man over there who walk as through he owned the 
 world he is but a lord and yet their our many who does his bid- 
 ding as through he was a king but he is nothing more than an 
 honest man. 
 
 THE DESERTED VILLAGE 
 While I was wandering around I meet with grief I always 
 had hope that before candle within me when out that I would 
 be sitting around that little old fire place where many a happy 
 an hour was spent and show them that my life long hours had 
 not been spent on doing nothing. 
 
 These boys are from 14 to 17 years old. Judging by their 
 names, they are of English, German and Irish extraction. They 
 have attended school at least seven years, during which time 
 they have been periodically promoted. By the operation of 
 what principle or policy they were placed among those con- 
 sidered deserving of promotion we leave to the educational au- 
 thorities to conjecture or explain. But if the conduct of the 
 schools is to be investigated, the investigation ought not to stop 
 short of inquiry into the methods of promotion from grade to 
 grade, and the degrees of proficiency that are deemed adequate 
 for promotion in the several schools. 
 
 Those wishing to make studies of the extent and causes of 
 retardation and non-promotion in their own schools will do 
 well to obtain copies of Superintendent Maxwell's report. 
 Building upon the tremendous gains marked by this report 
 and the study which preceded it will be easy because so many 
 definite questions are propounded and because the written ex- 
 planations by teachers will furnish facts taken directly from 
 individual children who fail rather than from theories or be- 
 liefs of principals, teachers and superintendents. In a short 
 time it should be possible to state the causes in order of in- 
 tensity instead of emphasizing the fact that they are not 
 stated in any order of intensity. 
 
 While late entrance to school is given as the chief cause 
 of retardation, the table on pages 91-92 of the report shows 
 
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that in January and June respectively 58,500 and 49,000 who 
 failed of promotion were of normal age. Again, of 19,000 who 
 failed in the i-A grade in January only 2,300 were over age, 
 so of 17,000 in i-B grade only 2,124 were over age. Further- 
 more, between September and June 30, for which date more 
 generous and more liberal promotions are noted, 51,000 chil- 
 dren dropped out of the elementary schools in addition to 
 those who graduated in February. These facts are cited to 
 raise a question that is fundamental to any discussion of re- 
 tardation, non-promotion and late entrance: Shall non-pro- 
 motion and retardation figures be based upon ages or upon 
 failures ? 
 
 In New York City normal age for the first grade includes 
 all children (a) under six, (b) six to seven, and (c) seven to 
 eight. Normal age in the fourth year includes (a) under nine, 
 (b) nine to ten, and (c) ten to eleven. In other words, a child 
 may come at five (3,918 June 30, 1910) fail once or twice in 
 his fifth year, fail twice in his sixth year, and fail once in his 
 seventh year, and still be classed as normal and unretarded 
 when entering school the following September. 
 
 If the New York figures for over age followed Cleveland's 
 classification and gave but one year to a grade, the following 
 additions would be necessary to those over age in each of the 
 eight regular grades : 
 
 1 16,777 S 2,746 
 
 2 23,343 6 19.533 
 
 3 24,167 7 18,413 
 
 4 23,841 8 13.043 
 
 In addition several thousand children should be added 
 who are excluded from the age tables because in special 
 classes for the over age, for non-English speaking and other 
 handicapped children. Thirdly, there should be added part 
 of the 51,000 children who represent the difference between 
 net enrollment for the year and those in school June 30th 
 when the age tables were prepared, after excluding graduates. 
 
 Readers of this bulletin may take for granted that for 
 some time to come the subjects of retardation, non-promotion, 
 undue acceleration, late entrance, etc., will be the subject of 
 continuous concern on the part of New York City's teachers, 
 principals, superintendents and local school boards and will do 
 well to apply for information to the school authorities at 59th 
 Street and Park Avenue. 
 
 Two Other New York Inquiries 
 
 Two other contributions to these subjects are being made 
 this year in New York City: (i) the local school boards, which 
 have 230 members, are taking greater interest than ever before 
 in school matters, and are at this particular time endeavoring 
 to work out uniform standards of efficiency and inquiry 
 among board members themselves. For information apply to 
 Leo Arnstein, secretary, borough of Manhattan, City Hall; 
 
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^M SO 
 
 — 019 639 517 9 * 
 
 (2) the proposed inquiry by the board of estimate and appor- 
 tionment will deal with these same questions, first from the 
 standpoint of the amount of money involved and the directions 
 in which money shall be spent so as to decrease evils, and 
 secondly, from the standpoint of methods of organization and 
 supervision which will mitigate causes of non-promotion and 
 retardation. The chairman of the committee is President John 
 Purroy Mitchel, 51 Chambers street. 
 
 Nation Wide Demand for a. Common Language in Describing 
 School Experience 
 
 At the Mobile meeting of the division of superintendence 
 of the National Education Association next month, a report of 
 progress will be made by the special committee appointed at 
 the Indianapolis meeting, 1910, to recommend uniform and 
 adequate records and reports. The secretary is Prof. George 
 D. Strayer, Teachers' College, New York City. 
 
 At Mobile a form of financial statement will be recom- 
 mended upon which the N. E. A. Committee, the U. S. Bureau 
 of Education, the U. S. Census Bureau and the Association 
 of School Auditors have agreed. A common language for the 
 discussion of such subjects as non-promotion and retardation 
 should be worked out and agreed upon in time to afifect the 
 records with which school men will begin their work in Sep- 
 tember, 191 1, and in time to influence the discussion of the 
 school superintendents for the year ending June, 191 1. 
 
 For discussion of the general work of the Bureau of Muni- 
 cipal Research for efficient citizenship, budget making, ac- 
 counting, etc., address : 
 
 BUREAU OF MUNICIPAL RESEARCH, 
 
 261 Broadway, New York. ' 
 
 Efficient Citizenship No. 416 
 
 Por additional copies of this pamphlet send 5c. for 1, 50c. for 20 
 $2.00 for 100. 
 
 Extra copies of Hon-Fromotion Table, rolled for mounting-, 5 cents each. 
 
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