SOME PROBLEMS IN CYTY SCHOOL ADMINISTRAT! GEORGE D. CTRAYER sm m^ ;jirjni^,3^3- WmnML.^^ ..SERIES Ciass /: ■fi'=y;r.. Book._, ->- s dp. Copyright N^ CiJnfRIGHT DEPOSIT. ^^ Sllllllllllllllllllllllllllillllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllllln = = I 'HT^HE School Efficiency Series comprises thirteen | I Jl volumes by as many educational experts on Ele- | I mentary School and Kindergarten, High School, and | I Vocational Instruction, Courses of Study, Organization, | I Management and Supervision. The Series consists of | I monographs based on the report of Professor Hanus | I and his associates on the schools of New York City, j I but the controlling ideas are applicable as well in one | I public school system as in another. | I Among the authors contributing to these volumes are | I included Professor Paul H. Hanus, Professor of Edu- | 1 cation, Harvard University, who is also general editor | I of the whole series; Dr. Frank P. Bachman, General | I Education Board; Dr. Edward C. Elliott, Director of | I the School of Education, University of Wisconsin ; Dr. | I Herman Schneider, Dean of the College of Engineering, | I University of Cincinnati; Dr. Frank W. Ballou, Di- | I rector of Promotion and Educational Measurement, | I Boston Public Schools; Dr. Calvin O. Davis, Assistant | j Professor of Education, University of Michigan; Dr. | I Frank V. Thompson, Assistant Superintendent of | I Schools, Boston; Dr. Henry H. Goddard, Director | I Department of Psychological Research, New Jersey | I Training School for Feeble-Minded Boys and Girls; | I Mr. Stuart A. Courtis, Supervisor of Educational Re- | j search in the PubHc Schools, Detroit; Dr. Frank M. | I McMurry, Professor of Elementary Education, Teach- | I ers College, Columbia University; Dr. Ernest C. Moore, | I Professor of Education, Harvard University; Dr. | I Ellwood P. Cubberley, Professor of Education, Leland | I Stanford Junior University ; and Dr. George D . Strayer, | I Professor of Educational Administration, Teachers | = College, Columbia University. i SCHOOL EFFICIENCY SERIES Some Problems in City School Administration SCHOOL EFFICIENCY SERIES Edited by Paul H. Hanus Some Problems in City School Administration By GEORGE D. STRAYER PROFESSOR OF EDUCATIONAL ADMINISTRATION, TEACHERS COLLEGE, COLUMBIA UNIVERSITY Assisted by Frank P, Bachman, Ellwood P. Cubberley William T. Bawden, and Frank J. Kelly YONKERS-ON-HUDSON, NEW YORK WORLD BOOK COMPANY 1916 Copyright, igi6, by World Book Company All rights reserved SES : SSPCSA — I IK^^) -38^^^ SEP 21 idl6 sj)CI.A43853S EDITOR'S PREFACE 'X'HE School Efficiency Series was intended originally to •*■ include only the volumes containing the report of my associates and myself on the New York City School In- quiry. Since that inquiry (survey) was undertaken a number of school surveys of smaller cities have been made. Most of the reports of these surveys seem to me to have more than a temporary value; and most of them have not been published as yet, in book form. I accordingly sug- gested to the World Book Company that the School Effi- ciency Series be extended to include at least some of these reports. This suggestion found favor with the World Book Company, and the report on the Portland (Oregon) survey was published as a volume of this series about a year ago. When the report on the Butte survey appeared, I sug- gested to Dr. Strayer that if agreeable to him and his associates I would like to publish it as a volume of the School Efficiency Series because, like the New York and Portland reports, it embodies a record of facts concerning a particular school system which it is impossible otherwise to obtain. Also like those other reports, it embodies meth- ods of studying schools and school systems and discusses principles of procedure in school activities that are uni- versally applicable — just such concrete facts, methods, and principles as constitute the most valuable material we can obtain for critical analysis and evaluation by all students of education and particularly by superintendents of schools and other school officers. Dr. Strayer assented to my suggestion, and I now take pleasure in presenting his report on the Butte survey as the latest volume of the present series. vii viii Editor's Preface Since I had no part in the Butte School Survey nor in the preparation of the report on that survey, I cannot claim any responsibility for either; but I am glad to ex- press my hearty concurrence with most of the conclusions and recommendations of the present volume. Neverthe- less, on one significant point it seems to be important that I should state my own views, even if, in doing so, I must express fundamental disagreement with Dr. Strayer and some of his associates. On page 156 reference is made to the use of the Hillegas Scale for measuring compositions written by elementary school children; and the statement is made that this scale consists of ten compositions — seven of which were selected from a large number of compositions written by young people and three of which were artificially constructed by adults to secure compositions of zero or nearly zero value. It should be noted that of the seven compositions in the Hillegas Scale actually written by young people, five were written by high-school children and two were written by college freshmen. Further, the Hillegas Scale is composed of compositions of different kinds. One of the funda- mental requirements of scientific measurement is that the thing to be measured should be measured by a portion of the same kind of thing; and from what has been said it is clear that the Hillegas Scale does not fulfill this condition. Nevertheless, Dr. Strayer and others have used the scale to advantage. The point I wish to make in regard to this scale is that no one ought to use it without having in mind its defects and limitations. The Hillegas Scale, as a pioneer, has served a useful purpose; but for the reason given above it is clear that we need a better scale. Paul H. Hanus. Harvard University. CONTENTS Page Editor's Preface vii Introduction 3 I. THE ADMINISTRATIVE PROBLEM Chapter I. The Administration OF THE Schools .... 11 (1) The Legal Basis for the Schools: State Control of Schools — School Districts of the First Class — Large Powers of the State — Limitations of State Control for City School Systems (2) The Board and Its Problems: Executive Officers of the Board — The Proper Official Relation between the Board and the Superintendent — The Board's Proper Function — Funda- mental Administrative Principles II. The Teaching Corps 21 (1) Selection and Training of Teachers: The Preparation for Teaching of the Present Corps — Conclusions from the Data as to Preparation — Recommendations for Further Profes- sional Training of the Teachers and Principals (2) The Salaries of Teachers: Recommendations as to Salaries — A Probationary Period for Inexperienced Teachers — Salaries of Special Teachers — Salaries of Principals — Salaries of High-School Teachers — Essential Features of the Salary Plan Proposed III. School Buildings and Equipment 31 School Sites — Types of Buildings Found — Typical Class- rooms Found — A Proper Type of Classroom — A New Type of Building Needed — The Advisability of Erecting Larger School Buildings — Intermediate-School and High- School Buildings — Janitor Service IV. Census, Records, and Reports 48 The Present School Census — Suggestions for Improving and Amending the School Census — Information to Collect — Time to Take the Census — Card Census File — Keeping the Census File Up to Date — Educational Use of the Census File — Present Effectiveness of Attendance Service School Records Needed — The Teacher's Register or Blotter — Report of Principal to Attendance Officers — Report of Principal to Superintendent — Report of Attendance Officers to Superintendent Need for More Effective Cooperation in Attendance Work — Advantage of Simplifying Present School Records — Summary ix X Contents Chapter Page V. Finance and Accounts 60 (1) Costs of the School System: Difficulties Encountered in Comparing Costs — Comparative Per Capita Costs (2) Costs as Shown by the Present System of Accounting — Deficiencies of the Financial Records II. THE INSTRUCTIONAL PROBLEM VI. The Classification and Progress of Pupils . 67 Character of the Population of Butte — School Population of District No. 1 — The Holding Power of the Butte Public Schools — The Progress of Children in School — Amount of Over-Age — Degree of Over-Age — Significance of Over-Age — Cause of Over-Age — Special Classes for Backward Chil- dren — Elementary Summer Schools — Rate of Promotion and Non-Promotion — Reducing Non-Promotion — Failures by Studies — Reducing the Number of Failures — Size of Class in Elementary Schools — Size of Sections in the High School — Failures by Studies in the High School — Summary yil. The Quality of Instruction loi (1) Standards for Judging the Quality of Instruction and Classroom Procedure: The Three Types of Lessons — The Lesson for Habit Formation — Lessons Involving Thinking — Lessons for Appreciation — Teaching Children to Study — Social Phases of School Work — Discipline and Manage- ment (2) The Quality of the Teaching Done in the Butte Schools: Greater Efficiency Possible — Good Work Seen — Drill Work — Effect of the Examination System — More Teaching for Appreciation Needed — Sunnnary VIII. The Courses of Study . 119 New Conceptions of Education — Failure of the Courses of Study to Meet the New Demands in Education Fundamental Needs: (1) Elementary-School Courses of Study: Lack of Kinder- gartens — The First School Grade — Work in Arithmetic — Language Work — Reading and Literature — Home Reading Books — History and Civil Government — Geog- raphy — Nature Study and Science Instruction — Spelling — Writing — Music — ■ Drawing — Play and Physical Train- ing (2) Manual and Household Instruction in the Elementary Schools: Time Allotment — Extension of the Handwork — New Lines of Work — 'Additional Centers and Equip- ment — The Thought Side of Manual Training — Super- vision Needed — Household Arts for Girls — Household Art Centers (3) Intermediate Schools: Possible Reorganizations Rec- ommended — Educational Advantages of the Plan Recom- mended — How the Intermediate School Meets the Special Needs of the Upper Grades — Possible Courses of Study for Intermediate Schools — Difficulties in Inaugurating the Plan (4) The High School Contents xi Chapter Page IX. The Achievements of Pupils 150 (1) Spelling: The Spelling Tests — The Word Lists Used — Scoring of Papers — The Results (2) Composition: The Composition Test — Scoring the Papers — Typical Compositions Written by Butte Children — Evaluation of the Composition Work (3) Penmanship: The Penmanship Tests — Scoring the Papers — The Results (4) Arithmetic: The Arithmetic Tests — Scoring the Papers — The Results (5) Summary X. The Supervision of Instruction 185 Demonstrations of Methods of Teaching — Cooperation of Teachers in Developing School Policies — Measurement of the Achievements of Pupils — Standard Tests of Instruction — Teacher and Supervisor XI. Adaptation of the Schools to Community Needs 193 (1) The New Types of Instruction: Kindergartens — Special Classes for Special Groups — Night Schools — Classes for Those Who Do Not Speak English (2) Care for the Physical Welfare of the Children: Facilities for Play — Physical Condition of the Children — • Probable Physical Conditions — Types of Health Supervision — The School Nurse — The Teacher and Health Supervision — Instruction in Hygiene and Play Supervision XII. Summary, Conclusions, and Recommenda- tions 204 The Administration of Schools — Selection, Training, Tenure, and Salaries of Teachers — School Buildings and Equipment — Census, Records, and Reports — Costs and Financial Records — The Classification and Progress of Pupils — The Quality of Instruction — Courses of Study — The Achieve- ments of Pupils — The Supervision of Instruction — The Adaptation of Schools to Community Needs APPENDICES A. The Initiation and Authorization of the Survey 217 B. Blank Forms Used in Collecting Data .... 218 INDEX 227 Some Problems in City School Administration SOME PROBLEMS IN CITY SCHOOL ADMINISTRATION INTRODUCTION npHE survey of the Butte public school system was under- ■*" taken upon the invitation of the Board of School Trustees and the Superintendent of Schools. In extend- ing their invitation to the director of the Survey, the Board agreed that he should choose his associates from among those w^hom he considered best qualified for the v^ork in hand, and assured him that the report would be published as written, without amendment or editorial change. The time allowed for the work was four weeks, and it was agreed that the cost to the Board of School Trustees for the salaries and expenses of the Survey commission should not exceed four thousand dollars. At their first conference concerning the work to be done, the members of the commission agreed that it was the pur- pose of the Survey to acquaint the Board of School Trustees and the citizens of Butte with the conditions as they exist in the public school system, with respect to the school plant and its equipment, the methods of administration and super- vision of the schools, the instruction and courses of study, the training, tenure, and present efficiency of the teaching corps, and the classification, progress, and achievements of children in the school system, together with such recom- mendations as might seem to them to be justified in the light of the facts which they might be able to collect, or observations which they might make. The members of the commission agreed that they would seek to place clearly before those who might read their report the achievements 3 4 Problems in City School Administration of the school system, or, in other words, its present strength, the needs of the school system as determined by whatever inadequacy might be found to exist, and the policies which, in their judgment, should furnish a program for future development. In the actual conduct of the Survey, emphasis has been placed throughout upon the possible service which should be rendered by the school system to all members of the community. Since the school system, as at present or- ganized, deals almost exclusively with the education of children between the ages of six and twenty years of age, the greater part of this report will be found to be devoted to a consideration of the education now offered to these children, together with such recommendations as seem to the members of the commission to promise improvement in the conditions under which this education is offered or in the results which may be secured. The report has not neglected, however, to consider the problem of the education of children under six years of age, and the possible wider use of the school plant for the education of those who are beyond compulsory school age and not now in attendance in the school system. The general plan for the work of the Survey com- mission had been thoroughly discussed and outlined by the time its members reached Butte. As soon as possible after reaching the city, conferences were held with the Superintendent of Schools, with the Board of School Trustees, and all of the teachers of the school system. The members of the commission profited largely from these meetings. They have felt throughout their work that their understanding of the local school situation depended in large measure upon the free and frank discussion which they were able to enjoy with those interested in the wel- fare of the school system. In the conference with teach- ers, the position of the Survey commission with respect to individual members of the teaching corps was made clear. Some of the teachers had felt before that meeting that Introduction 5 the Survey was intended to report upon the quahficatlons of individual teachers, in order that the Board of School Trustees might be informed, and might, upon recommenda- tion of the commission, either rehire or dismiss individual teachers from the school system. In this report recom- mendations are made with respect to the fjurther training of teachers, and the qualifications for those who may later enter the school system, but the commission have been care- ful not to express any opinion concerning any individual teacher or other employee of the Board of School Trustees. This position seems to them to be fundamental in all sur- vey work done by specialists called in from outside the regular administrative or supervisory staff. The commission endeavored from the first to make it clear that they would be willing to discuss the needs of the school system with any representative body in the city who might care to invite them to meet for a discussion of these problems. During the course of the Survey they accepted invitations to attend meetings of the Silver Bow Trades and Labor Council, of the supervisors and principals of the public school system, of the teachers' union, of the city parents-teachers' association, of the Woman's Club, and of the Chamber of Commerce. Upon the suggestion of some of the teachers who were interested in the tests given to children, a meeting of the whole teaching corps was held in order to acquaint teachers with the nature of the tests given and to enable them to understand the methods used in scoring results. Another meeting of the teaching corps by grade groups was held for the discussion of problems peculiar to the different groups of teachers. As has already been suggested, the purpose of the Sur- vey had to do mainly with suggesting possibilities for im- proving the opportunities of the children in the public schools. To accomplish this end, all the members of the commission spent the first week during which they were at work in Butte upon the Survey, in visiting the class- rooms. All the schools in Butte, except the rural schools, 6 Problems in City School Administration were visited, and every teacher's work was observed for a whole recitation or for such part of a recitation as was necessary to make clear to the observer the method of instruction employed by the teacher and the results she was securing from the pupils. In connection with these visits short conferences were held with teachers, and longer conferences, lasting from one to three hours, were held with the principal of each school. During the whole time devoted to the Survey, each member of the commission visited at least seven schools, while one member of the commission visited twelve. After the careful observation of the quality of teach- ing had been completed, a systematic attempt was made to discover the quality of work done by pupils by giving to as many children as possible tests which had been used in other school systems. Specimens of handwriting were collected from all the children. Tests in spelling, arith- metic, and English composition were given in at least ten schools and in as many grades as time permitted. Such data as were available concerning the work of the school system, in the form of courses of study, textbooks used, rules and regulations, and records to be found in the offices of the Superintendent of Schools and the School Clerk, were carefully studied. The courses of study were made the subject of several conferences by all the mem- bers of the commission. The forms in the Superintendent's office, upon which were recorded the qualifications of teach- ers and their efficiency as reported by the principals of schools, were carefully read. In order to supplement data available in the Superinten- dent's office, and in order to have a basis in fact for the judgments which the members of the commission felt called upon to render, special blanks were prepared and data were secured with reference to the training, experience, tenure, and salaries of teachers, the number of children per teacher in the school system, the ages of children in each grade of each school, the number of days of attend- Introduction 7 ance for all of the children in two schools, the rate of promotion and non-promotion, together with the subjects in which pupils failed, by grades. As a result of a month's work, along the lines indicated above, the Survey commission herewith present to the Board of School Trustees their report on conditions and needs, together with a constructive program for the future development of the school system of Butte. They can- not, of course, hope that all their recommendations will be at once put into effect. Some of the recommendations clearly look to the future. It is, however, entirely pos- sible for the Board of Trustees, with the support of the people of this school district, to carry all the recommenda- tions into effect within the next four or five years. Should this be done, the commission feel that a very great improve- ment in the school system of Butte would result, — an improvement which would do much to advance the best interests of the citizenship of the city. In presenting this report to the Board of School Trus- tees and to the citizens of Butte, the members of the com- mission wish to express their appreciation of the uniform courtesy and kindness which has been extended to them by the members of the Board of School Trustees, the Super- intendent of Schools, the supervisory corps, and the teach- ing staff, and by those citizens of Butte with whom it has been their good fortune to come in contact. PART I The Administrative Problem CHAPTER I THE ADMINISTRATION OF THE SCHOOLS (i) The Legal Basis for the Schools npHE schools of Butte are organized in pursuarrce of the ■■■ constitution of Montana (Art. XI, Sec. i), which re- quires that the legislative assembly shall "establish and maintain a general, uniform, and thorough system of pub- lic, free common schools," by means of which a free school shall be organized and maintained in each school district in the state. STATE CONTROL OF SCHOOLS In pursuance of this mandate of the constitution of the state, the legislature has enacted a detailed School Code, larger and longer than this report of the Survey commis- sion, and in which regulations for the organization of school districts, the election of school officers, the main- tenance of schools, the certification and appointment of teachers, the selection of textbooks, the attendance of chil- dren, the erection of school buildings, and many other mat- ters relating to the administration and supervision of schools, are fully set forth. Instead of leaving the main- tenance of schools to community option, their maintenance has been required; instead of leaving the levying of taxes to the whims of town or city councils, the Boards of School Trustees have been given independent power to levy a school tax ; instead of leaving attendance optional with communi- ties, the law requires all children between 8 and 14 to attend school every day the public schools are in session, regulates the labor of children, and requires districts of the first class to appoint truant officers, with police powers, to en- force the law; instead of leaving the length of term and the 11 12 Problems in City School Administration kind of teacher employed to communities to determine, the state has required a nine-months term in all first- and sec- ond-class districts, and forbidden the payment of school money to any teacher not possessed of a teacher's certificate, as required by law ; and, in many other matters, what com- munities must do is definitely and specifically laid down in the school code of the state. The courts, too, have uniformly decided that school districts are separate and distinct corporations from mu- nicipal corporations with which they may be contiguous or of which they may form a part. Municipal corporations exist for the purposes of local government, and are largely local affairs ; school corporations exist for the carrying out of a state purpose, are largely independent of local control, and are under the supervision of a special department of the state government. A school district and a municipality frequently have entirely different boundaries, as, for ex- ample, in the case of Butte. SCHOOL DISTRICTS OF THE FIRST CLASS To carry out the state purpose better, the school dis- tricts of the state are classified under the law as districts of the first, second, or third class, and larger independent powers are given to the larger districts. A school district which has a population of 8,000 or over within its boun- daries is classified as a school district of the first class, and to this classification Butte belongs. Such are to be governed by a Board of School Trustees of seven mem- bers, to be elected by the legal voters of the school dis- trict, at the annual April school elections, for three-year terms. The Board, when properly organized, becomes a body corporate and politic, with power to sue and be sued, make contracts, purchase and hold school property, and conduct the schools of the district according to the pro- visions of the school law of the state. Each such board in a district of the first class has power (School Laws, Administration of the Sclwols 13 Sees. 507-8), also, to establish high schools; to transport children to a central school or schools; to establish night schools; to add any new branches of instruction which they may desire to add; to establish and maintain kinder- gartens (Sec. 602) ; to appoint a School Clerk (Sec. 504), to attend to the business affairs of the Board; and to ap- point (Sec. 1502) a City Superintendent of Schools, "for not longer than a three-year term," who "shall have super- vision of the schools of the district" and who "shall be the executive officer of the board." LARGE POWERS OF THE STATE Even in districts of the first class the powers of the School Board come from the state and not from the city; its authority to act comes from the state school law; and its limitations are imposed by the state. The state even says what subjects must be taught (Sec. 601) ; what text- books must be used in the schools (Sees. 1 800-181 3) ; may prescribe the course of study which must be used (Sec. 202, Div. 8) ; and may even examine the pupils in any school system, to test whether or not they shall be pro- moted from the elementary schools to the high school ( Sec. 106, Div. 4). These state regulations have been prescribed largely in an effort to protect the schools from the attacks or the neglect of short-sighted communities, the power being given to the state to prevent such communities from defrauding their children out of the educational rights and opportuni- ties which the state has, in its wisdom, decreed that the children of the state shall have. LIMITATIONS OF STATE CONTROL FOR CITY SCHOOL SYSTEMS State oversight is both the strength and the weakness of the schools. In small districts, especially those of the third class (under 1,000 inhabitants), most of the limita- 14 Problems hi City School Administration tions Imposed are very desirable, but In districts of the first class, especially districts having 25,000 or more in- habitants, some of the limitations and requirements of the state must be remitted. The Survey commission is glad to record that the state educational authorities have used the option allowed them and have granted the Butte school district freedom from the uniform state examinations, and permission to frame its own course of study. These were important grants, had they been fully availed of. Instead, the state examinations have merely been replaced by local examinations, almost equally unpedagogical and deadly in their results (see Chapters VI and X) ; while the permission to frame a local course of study has only in part been availed of (see Chapter VIII). A district of the first class, and especially such a large district as that of Butte, should also be allowed to use other books than the regular state textbooks, if It should so desire. State oversight and control should never go to the extent of Interfering with local initiative and local efficiency. In the matter of textbooks, Butte, for its particular needs, could easily improve on some of the state- adopted textbooks which it must now use; to enforce the use of the state course of study and the state promotional examinations on Butte would be. If a good school system is to be maintained, little short of a calamity. The meth- ods, aims, and purposes of an efficient modern city school system, such as Butte ought to develop for Its children, and the methods, aims, and purposes of the state course of study and the state examinations, made out, as these have been, with the needs of untrained teachers in Isolated rural schools primarily In mind, are so diametrically op- posed that the two are not reconcilable. The results on the schools of Butte, in the past, of this state-type of in- struction was brought out fully by the tests which were given by the Survey commission (see Chapter IX), and the changes and reorganizations now needed have been set forth at some length in Chapters VII and VIII. Administration of the Schools 15 (2) The Board and Its Problems Within the limits prescribed by law the Board of Trus- tees for School District No. i of Silver Bow County, Mon- tana, more commonly known as the Butte school district, have official control of the schools. The title to the school property rests with them, and, as a continuing body, they pass the title on to their successors. They appoint their own executive officers, employ principals and teachers for the schools, determine what schools shall be maintained and what new types of instruction shall be provided, de- termine the school tax to be levied, and have power to make rules and regulations, not inconsistent with the state law or the rules and regulations of the state board of edu- cation, for the government of the schools of the district. Within the limits laid down by the school law of the state the powers of the Board of School Trustees are large, — too large, in fact, for any lay board of school officers to exercise intelligently, unless they obtain and follow as good expert advice as they are able to obtain. EXECUTIVE OFFICERS OF THE BOARD To guide the board in its official actions the law has provided for the appointment, in school districts of the first class, of two executive officers, — a Clerk, and a City Super- intendent of Schools. The success of a school system such as that of Butte depends largely upon the intelligence used by the Board in selecting the best possible persons for these offices, and then upon how fully they rely, in their many official acts, on the judgment of the officials selected. Only the best men available for the money the Board can afford to pay should be selected for these positions. The City Superintendent of Schools, for a city school system the size of Butte, should be the official head of the school system, and much of the policy in the development of the school system should emanate from him. He, more i6 Problems in City School Administration than anyone else, should be the thinking and constructive leader of the schools. When he is so, the Board should follow his judgment and leadership, and should not super- impose its own judgment, except in matters of large im- portance. When he is not, the Board should secure a suc- cessor who will think, and can lead. In all such matters as the courses of study, the appointment, promotion, trans- fer, and dismissal of teachers, and the organization of in- struction, the Board should act only on the recommendation of the City Superintendent of Schools. In the matter of new school buildings and the repair and reconstruction of old buildings, all plans should be subject to his approval, to insure that good hygienic standards are followed. While the School Clerk should be intrusted with many business matters, and often with power to act independently in the name of the Board of Trustees, he should, never- theless, in all such educational matters as the purchase of school supplies, the relations of the Clerk's office to the teachers and the schools, or the maintenance of efficiency in the janitor service, act in harmony with the wishes of the City Superintendent of Schools. In other words, the City Superintendent of Schools, as the chief executive officer of the Board of School Trustees, should have official over- sight and coordinating authority over the office of the School Clerk, as well as over all other employees of the Board of School Trustees. If he is a man of good judg- ment and good sense he will allow large independence and use his authority but seldom, but the fact that such coor- dinating authority rests with him will do much to promote efficiency and secure proper relationships within the school system. The chart on the following page shows the rela- tionships which should exist. Administration of the Schools 17 I ■ "^p h- on K,=> ,-t(o >T "'z 1 2^ u^ ^S i s 1 2 <0 h- < LU , 7 OX:d D OR OFT .CHOC LU 111 Vi h- S y z> •^ ;?^ QQ g ? 1 8 Problems in City School Administration THE PROPER OFFICIAL RELATION BETWEEN THE BOARD AND THE SUPERINTENDENT So long as the Board of Trustees has confidence in the abiHty and good judgment of the Superintendent of Schools, he should be supported in his efforts to improve and advance the interests of the schools; when the Board loses this confidence they should replace him by someone in whose ability and good judgment they have confidence. They should not make the common mistake of attempting to assume authority in educational matters themselves, concerning which they cannot act intelligently, nor should they permit the Superintendent of Schools to evade his proper responsibility by putting it off upon them. Book agents, supply agents, applicants for teachers' positions, disgruntled teachers and principals, and all others seeking favors In the school department, should at once be re- ferred to the Superintendent of Schools, with the simple statement that the Board makes it a rule to take no action in such matters except upon his recommendation. When once this is generally understood by the community, the Board members will be saved the waste of much valuable time, and the efficiency of the educational service will be greatly improved. The Superintendent will naturally make some mistakes, but a much smaller number than will the members of the Board of School Trustees. One impor- tant measure of the efficiency and capacity of a Superin- tendent of Schools is his willingness and his ability to assume authority and to carry large responsibilities, and, conversely, one important measure of the intelligence and educational insight of a Board of School Trustees for a city school system is the degree to which they refer edu- cational matters to the Superintendent and intrust him to act for them, and then stand firmly behin-d him when he acts. Administration of tJte Schools 19 THE board's proper FUNCTION" This does not mean that the Board of School Trustees will have nothing left to do. On the contrary, there will still be plenty left for them to manage. It simply means that in those matters which are matters of expert judg- ment, and which no board of laymen is competent to de- cide, they ought to act only on the recommendation of the educational expert they employ, and ought to trust. It is a sheer waste of public funds to pay $4,000 for an edu- cational expert, and then disregard his advice and judg- ment. In all matters such as the hygienic aspects of school- house construction, the outlining of courses of study, the selection of text and supplemental books, passing on the competency of instruction or the efficiency of the service in the school department, — matters which no board of lay- men is competent to pass intelligently upon,— action should be based only on the recommendation of the expert edu- cational officer of the Board. This leaves the Board free to attend to the main busi- ness which they are elected to handle, and frees them from the hundreds of petty annoyances incident to the personal pulls and influences which beset any lay school board which attempts to exercise expert functions. The large problems which a Board of School Trustees must handle are the selection of expert advisers and assistants, upon which great care should be exercised ; the selection of school sites, always with future needs in mind; the erection of school buildings, to see that they meet good standards and are properly built; the larger problems of finance, present and future; the determination of the annual budget; the ap- proval of expenses incurred; the final decision as to pro- posed expansions and developments of the public educa- tional system under their control; and the representation of the needs of the school system before the people of the community, and, if necessary, before the legislature of the state. These larger needs are far more important and 20 Problems in City School Administration far more vital than the smaller and more personal details of school administration to which Boards of School Trus- tees too frequently devote the larger part of their energy and thinking, — often to the detriment of the schools under their control. FUNDAMENTAL ADMINISTRATIVE PRINCIPLES By way of summary it may be stated that the chief function of a Board of School Trustees is to govern, rather than minutely to supervise or direct; to watch the larger problems of its work, and to trust the smaller ones to the experts it employs; and to keep themselves free from the personal influences and personal and party pulls which so constantly surround them, by placing all personal matters in the hands of an expert who knows what ought to be done, and who has the courage to stand for fundamental educational principles and policies. The school business of Butte is an important part of this community's efforts at self-government and self-improvement, and the purpose for which the schools were created and are maintained is the proper education of the school population of the community. They exist, in no sense of the word, to afford positions for teachers or contracts for individuals. Posi- tions and contracts are purely incidental and subordinate and should be kept so, in order that the best possible edu- cation of the children, for whom the schools exist, may be carried on under the best conditions that are possible. CHAPTER II THE TEACHING CORPS (i) Selection and Training of Teachers "pXATA with respect to high-school training and normal- "^ school work before beginning teaching in Butte, pro- fessional training since entering the service in the city system, and experience in years in Butte and elsewhere, were collected on a blank furnished to all teachers, prin- cipals, and supervisory officers in the school system.^ The results are given in Table I, on page 2.2. the preparation for teaching of the present corps Some of the more important facts shown by the data collected are presented briefly below: 1. Of 181 elementary-school teachers who filled out the blank, 93 took their high-school training in Butte, 14 in other cities in Montana, and 74 outside the state of Montana. 2. Eighty-seven of these elementary teachers had no professional training before beginning to teach in Butte; 41 had some professional training, varying from 4 weeks to 2 years, in Montana ; while 53 had some professional train- ing, varying from 4 weeks to 2 years, outside the state of Montana. Of the whole number of elementary-school teachers reporting (181), only 22 had two years' normal- school or other professional training beyond their high- school course before beginning to teach in Butte, 3. Of the elementary-school principals, 6 out of 16 had two years of normal-school or other professional train- ing, beyond the high-school course, before beginning to 1 For form of blank, see Appendix B. 21 22 Problems in City School Administration TABLE I Education, Professional Training, and Teaching Experience of Principals, Supervisors, Special Teachers, and Teachers in Elementary Schools High school education obtained — 1. In Butte 2. In other Montana high schools 3 . Elsewhere Having no college training beyond high school Normal training before entering service in Butte— 1. None , 2. In Montana 3. Elsewhere Training since entering Butte — 1. None 2. Normal school 3. College or university Years of Teaching Experience — • 1. In Butte— o to 4 years 5 to 9 years 10 to 14 years 2. Elsewhere — • o to 4 years 5 to 9 years 10 or more years 3. Total years' experience — o to 4 years 4 to 9 years 10 to 14 years 15 to 19 years 20 or more years V ^ a a^ -s |h ^|rt H cJ Ph a> *c ^ O, »-H D eu cocJ^ WH H 4 93 97 I I 14 16 II 8 74 93 9 S 161 I7S 3 I 87 91 3 41 44 10 8 S3 71 9 3 147 159 4 S IS 24 3 3 19 2S 3 71 74 2 4 S4 60 12 2 19 33 7 4 116 127 3 I 36 40 2 II 13 2 17 19 I 2 61 64 I I 47 49 10 2 25 37 4 2 21 27 teach in Butte. Of the special teachers and supervisors, 8 had some professional training before beginning to teach in Butte, and 6 had 2 years or more of professional train- ing before entering upon service in the city school system. The Teaching Corps 23 4. The high-school teachers were, as required by a regulation of the Board of Trustees, graduates of ap- proved colleges or universities, but many of them had no specific professional training for their work. It was not possible on the form which was filled out to discover, with respect to high-school teachers, the exact nature or extent of their professional training. 5. One hundred and forty-seven out of 181 elementary- school teachers reporting have had no professional train- ing since entering the service in Butte; 15 have had some normal-school training, usually a summer school; and 19 have attended summer sessions in connection with colleges or universities. 6. Of the 16 elementary-school principals, 9 have had no professional training since entering the service In Butte, while 7 have attended summer schools In connection with normal schools or universities, since entering their period of service. 7. Out of 35 high-school teachers reporting, 12 have attended summer sessions since entering upon their work in the Butte high school. 8. Of all of the teachers in the city school system, 97 have taught in the Butte schools from i to 4 years, 70 from 5 to 9 years, 40 from 10 to 14 years, and 36 for more than 15 years. One hundred and fifty-one of these teachers have taught from i to 4 years outside of Butte, 46 have taught elsewhere from 5 to 9 years, and 15 have had ex- perience of more than 10 years outside of the Butte school system. (These data Include the high-school teachers.) CONCLUSIONS FROM THE DATA AS TO PREPARATION Any careful consideration of these data, especially when taken in connection with the discussion of the quality of instruction (Chapter VII), and the efficiency of the school system as measured by the achievements of school children (Chapter IX), leads Inevitably to the conclusion that, as 24 Problems in City School Administration a body, the Butte teachers lacked adequate professional training before entering service in the Butte school system, and that few of them have felt it necessary to secure such professional training since entering upon their duties as teachers in Butte. No city may hope to develop an effi- cient school system without requiring professional training for all who would teach in the system. In all progressive cities known to the members of the Survey commission, no teacher Is appointed to a position in the elementary schools who has not had at least two years of professional training beyond her high-school course. It is, of course, even more important that principals and supervisory offi- cers should have had such training. In the light of these facts, the commission have decided to make a specific rec- ommendation with regard to the professional training of those now in the teaching corps, and most strongly recom- mend that hereafter no one be elected to a position as a teacher or supervisor who has not had at least two years of professional training beyond the high-school course. RECOMMENDATIONS FOR FURTHER PROFESSIONAL TRAINING OF THE TEACHERS AND PRINCIPALS In order not to work any undue hardship upon those who are now at work in the school system, the plan out- lined below for providing professional training is recom- mended by the Survey commission. As has already been indicated, the great majority of the elementary-school teachers lack adequate professional training. These teach- ers, in their work in the Butte school system, have had similar experiences and faced similar problems and diffi- culties. It seems, therefore, to the commission, that much might be gained by organizing in Butte, either for the four weeks immediately following the close of the school year, or for the four weeks immediately preceding the opening of the next school term, a summer school in which the elementary-school teachers and principals would be organ- The Teaching Corps 25 ized in five or six groups, according to the grades in which they teach or the special supervisory work in which they are engaged. Such a school should be under the direction of the Superintendent of Schools, who should secure pro- fessional specialists as instructors. This school should be continued for at least three years in succession, and every teacher or principal should be required to attend two out of the three years. For those who might prefer to attend a summer school of six weeks elsewhere, provision should be made that, upon the approval by the Superintendent of Schools of the courses which they elect to take in these summer schools, they might substitute the work in summer sessions in con- nection with normal schools, colleges, or universities for the summer school in Butte. Since those now at work in the school system have, by virtue of the contracts which they now hold with the Board of School Trustees, earned the salary which these contracts call for, the commission believes that it would be only fair to allow to every teacher or principal attending the summer school in Butte, or else- where, one month's salary in addition to that called for by the present contract. We recognize that this would involve an additional annual expenditure of approximately $20,000 in salaries, as well as the cost of the summer school in Butte. The local summer school would probably cost at least $5,000. The commission are of the opinion, how- ever, that there is no way in which $25,000 could be spent to better advantage from the standpoint of improving the efficiency of the whole school system. (2) The Salaries of Teachers Any discussion of the efficiency of the teaching corps must take into consideration the salaries paid to the teach- ing body. The only satisfactory basis for a discussion of the salaries in Butte is to be found by comparing the sala- ries paid in this school system with those found in other 26 Problems in City School Administration Western cities. The following table presents the data nec- essary for this comparison: TABLE II Comparative Salary Schedules in Western Cities Teachers Principals City Minimum Maximum Minimum Maximum Salary Salary Salary Salary I. Elementary Schools: Alameda, Cal $ 840 $1140 $1620 $2160 Berkeley, Cal 840 800 1200 1320 2280 BUTTE, MONT 950 1120 1540 Los Angeles, Cal 744 1200 1200 2400 Oakland, Cal 780 1200 1500 2400 Pasadena, Cal 800 IIOO 1200 1900 Portland, Ore 725 IIOO 1050 2150 Salt Lake City, Utali . . 600 1020 San Diego, Cal 792 1032 1200 2004 San Francisco, Cal 840 1224 1320 2260 Seattle, Wash 840 mo 1200 2040 Tacoma, Wash 600 960 1140 1800 2. High Schools: Alameda, Cal 1200 1440 .... Berkeley, Cal 1080 1500 BUTTE, MONT 1200 14001 Los Angeles, Cal 1200 1560 Oakland, Cal 1140 IIOO 1500 Pasadena, Cal 1600 Portland, Ore 1150 1350 Salt Lake City, Utah.. 850 1400 San Diego, Cal 1200 1524 San Francisco, Cal .... 1500 1680 Seattle, Wash 1020 1560 Tacoma, Wasl 810 1350 It is evident from the table given above that the mini- mum salary paid to elementary-school teachers in Butte compares favorably with that paid in other Western cities, but that the maximum salary paid is lower than that found elsewhere. ^ One teacher paid $1,500. The Teaching Corps 27 RECOMMENDATIONS AS TO SALARIES It is the opinion of the Survey commission that those teachers now in the system should, during the next three years, consider the extra month's salary paid for attend- ance upon a summer school in Butte or elsewhere as a satisfactory increase in salary. This recommendation seems valid to the members of the commission in the light of the minimum of professional training now enjoyed by the very great majority of the teachers in the Butte school system. For those coming into the school system, who have had professional training and experience, the commission rec- ommend a salary schedule beginning at $900 and increas- ing automatically by $50 increments annually up to $1,000. After the salary of $1,000 has been reached, further in- crease should be made to depend upon professional training or special assignment of work. The commission believe that for each of two summer sessions, a further increase of $50 a year in salary should be allowed. (This further increase should also be allowed to teachers now in the school system after two summer sessions have been at- tended, in Butte or elsewhere, for which an additional month's salary has been paid.) For one year's work in a teachers' college, or other ap- proved professional school, an increase of $100 in salary should be allowed, provided that no elementary-school teacher's salary shall be greater than $1,200 annually A PROBATIONARY PERIOD FOR INEXPERIENCED TEACHERS If those who have had a four years' high-school course, plus a two years' normal-school course, are admitted to the system without experience, the commission recommend that they be paid, during the first year of service, not more than $750, and that during that year they be regularly employed in the school system as assistant or substitute teachers. When not on duty as substitute teachers, these 28 Problems in City School Administration inexperienced teachers should be placed in the rooms of the most capable teachers in the school system, and should, under the direction of the general supervisory officers, re- ceive careful training for the grade of v^ork which, in the judgment of the supervisory officers, they are best able to perform. SALARIES OF SPECIAL TEACHERS Those teachers who are charged with the responsibility of training, under the direction of the general supervisory officers, these inexperienced teachers should receive $ioo annually, in addition to the salary to which they are regu- larly entitled as per the recommendations made above, and they should be designated as training teachers. Teachers who are placed in charge of classes for back- ward or deficient children should receive these positions only after at least six weeks of special training with refer- ence to the problem of teaching such classes. They should be given $ioo in addition to the salary to which they would be regularly entitled, as provided in the schedule suggested above. SALARIES OF PRINCIPALS In the judgment of the commission, all elementary- school principals should receive a minimum salary of $1,200. An increase above that amount, or beyond the salary now paid to them, should be postponed until after two summer sessions have been spent by them in the study of supervisory problems, either in the Butte summer school or elsewhere. After such professional training has been secured, salaries should be increased automatically, by $ioo increments annually, up to $1,400. For principals who show superior skill as executive officers, whose ability as supervisors of instruction in the training of the teachers under their direction is certified by the Superintendent of Schools, whose professional interest and enthusiasm are The Teaching Corps 29 recognized by the members of the general supervisory corps, increases by $100 increments up to $1,600 should be provided, depending upon the study of supervision and related subjects for at least six weeks in a summer school for each increment of $100. SALARIES FOR HIGH-SCHOOL TEACHERS The minimum salary paid to high-school teachers in Butte compares favorably with most other Western cities. There does not seem to be enough provision for an increase in salary to enable the system to secure and hold the most capable teachers. The commission recommends that the minimum salary be put at $1,250, and that increases of $50 annually be allowed until a maximum of $1,400 has been reached. For those superior teachers who are willing to spend at least six weeks in the summer sessions of recognized colleges and universities, in the study of such subjects as may be approved by the Superintendent of Schools and the high-school principal, the commission rec- ommends that increments of $100 for each summer ses- sion, up to $1,600, be allowed. For high-school teachers, either now employed or later to be employed, who possess unusual skill as teachers, exec- utive ability, and professional interest and enthusiasm, the commission recommends the creation of the position of head of department, with a minimum salary of $1,600 and a maximum salary of $1,800, the maximum of $1,800 to be reached by increments of $100 only upon the recom- mendation of the Superintendent of Schools and the high- school principal, and only by virtue of the possession of superior professional training, or by reason of study in summer sessions, or in universities during other parts of the academic year, of the problems which are especially important to their several fields. It would seem to the Survey commission unwise to plan to create immediately heads of departments for each subject taught in the high 30 Problems in City School Administration school. Such positions should be held for those now in the system who show unusual professional interest and growth, or for those who are later to be brought into the system, on account of superior ability and training. ESSENTIAL FEATURES OF THE SALARY PLAN PROPOSED The plan outlined above for establishing salary sched- ules for teachers of the Butte school system recognizes the fact that it is necessary to pay a minimum salary in order to justify the investment in time and money which is essential for preparation for teaching. The plan further recognizes the need for an increase beyond this minimum salary for all teachers who are considered satisfactory workers in the system. The practice of the most progres- sive cities of the United States has led to the recommenda- tion that the maximum salary be granted only to those who are willing to secure special professional training, and who demonstrate special ability. It is always unwise to increase, automatically, the salaries of all teachers from the minimum to the maximum, since under such a system there are always those who early in their careers cease to be students, and consequently cease to grow in efficiency. The provisions enumerated for special training will, we believe, provide in the school system a group of wide- awake, growing, enthusiastic teachers, who must prove an invaluable asset in improving the efficiency of the school system. CHAPTER III SCHOOL BUILDINGS AND EQUIPMENT npHE problem of school buildings and their equipment ■■• had been most carefully studied, and reports had been prepared and presented by the school architect and the county health officer, and by the city health officer, prior to the beginning of the work of the School Survey com- mission. Access to these reports was freely granted, and they were found to be in substantial agreement. The mem- bers of the commission took copies of the reports with them, upon visiting the majority of the buildings, and found that they could, in the main, concur with the recommenda- tions which had already been made. This section of the report will, therefore, not attempt to recite in detail the deficiencies and needs for improvement in each of the school buildings. Such a report would necessarily only duplicate the reports which are already available for the School Board and for the citizens of the city. The commission have felt, however, that it was worth while to emphasize certain deficiencies which are common, and to make certain recommendations with regard to future development. SCHOOL SITES It Is unfortunate that the school sites which have here- tofore been purchased have been so small. The general plan of location of school buildings which has been fol- lowed in the past is that of purchasing a corner of a block, and then placing the school building near the property line of the two streets. So long as the streets are unpaved and no street cars pass the buildings the noise is not par- ticularly objectionable, but with the coming of streets paved 31 32 Problems in City School Administration with brick or stone, and the laying of the street-car tracks in concrete, the noise of passing traffic becomes so great that school work can scarcely be carried on. There are a number of rooms in the present high-school building, for example, where, if the windows are open, teachers are practically compelled to stop work when a street car is passing the building. A school-building site should be large enough that the building may be placed somewhat back from the street to escape some of the noise, and also to allow for playground facilities on each side of the building. The recent action taken by the Board of Trustees in presenting to the people, for their vote, the proposition to spend $150,000 on repairs for school buildings and for enlarging school grounds, in order to provide better playground facilities, cannot be too strongly commended. In the future, school sites should never be bought unless there is ample ground not only for the building, but for playgrounds for both sexes as well. TYPES OF BUILDINGS FOUND The common type of schoolhouse construction which has been followed in the past is what may be called the square type, as contrasted with the elongated type, which will be described further on in this chapter. The picture of the Franklin School, reproduced opposite this page, shows the type very well. As this building was recon- structed in 1 9 10, it may be taken to represent one of the more recent types of schoolhouses constructed. As will be pointed out further on, a square building does not en- able an architect to provide the right type of classroom arrangement, lighting facilities, or the proper arrangement of supplemental rooms, such as will be explained later on. Most of the buildings examined showed many defects from the standpoint of proper schoolhouse construction. The ceilings in many cases are too high, with the result that much fuel is used in heating the buildings, and much School Buildings and Equipment 33 34 Problems in City School Administration more stair climbing Is required. With a high ceiling, either more space must be used for stairways, or the incline of the stairs must be sharper. The fire escapes provided for many of the buildings are poorly arranged, children in a number of cases being compelled to go up steps and through a window In order to reach the fire escape; whereas the fire escape should be reached. In all cases, through a door pro- vided with patent Inside openers. In most of the buildings examined, the ventilating sys- tem was so poor that open windows had to be depended upon, in most of the rooms, for ventilating purposes. The air Intakes were near the ground. Instead of at the top of the building, and the smoked and dirty walls showed plainly that the ventilating system was not a satisfactory one. In a community such as Butte, where so much soft, smoky coal is used, all air sent to the schoolrooms for ventilating purposes should first be passed through a wash- ing chamber, to remove the soot and dirt from it. The toilet facilities provided in most of the buildings are Inadequate, there being only about one half the number of toilets provided which good schoolhouse construction requires. The ratio used by the best schoolhouse architects is one toilet for every fifteen girls, and one toilet or urinal for every fifteen boys, whereas the ratio commonly found here varied from one to twenty-five to one to forty pupils. The buildings generally were inadequately supplied with drinking fountains, and the basements of many were dirty, and some contained inflammable material which ought to be kept in special rooms. TYPICAL CLASSROOMS FOUND The drawing on the following page shows a typical classroom as found in Butte. It will be noticed that the lighting is from two sides, that the room is square, and that the room is relatively large. Many still larger rooms are to be found in the different schools. In some of the build- School Buildings and Equipment 35 ings, and even in some of the recently constructed ones, rooms were seen in which the light came from three sides 4'2 TT T'''^^ TT o o □ □ o o □ □ o o o o □ □ n n o o o o □ □ □ □ o o o o n □ □ □ O O O O P [^ O Q D n n n ^::i Fig. 3. A Typical Classroom in Butte A classroom in the Lincoln School. This is a typical Butte class- room, though there are many which are still larger. The square room, lighted from two sides, and the heavy divisions between the windows are the prominent characteristics of the room. The glare of light in such a room is very trying to the eyes. instead of two, though two is the almost universal arrange- ment. The ratio of glass to floor space is not the only 36 Problems hi City School Administration factor; the light must come into the room in the proper manner also. On the new Washington School, which is now in process of construction, these fundamental errors have been repeated in a number of the classrooms, and in two rooms the lighting comes from three sides. As a result, in almost every room in the city, the resulting glare and shadows must prove most injurious to the eyes of both the children and the teacher. In future buildings, no room should be lighted from more than one side, and the ar- rangement of windows should be as is indicated in the drawing and description given on the opposite page. In nearly all classrooms examined the blackboards were in poor condition, and in general were too high from the floors. Many of the blackboards now in use are shiny, difficult to write upon, and harder to read from. Any that are to be kept in use should be resurfaced frequently, and as soon as possible slate blackboards should be sub- stituted. The commission wishes to commend most heart- ily the action of the Board of Trustees in calling for bids for a carload of slate blackboards to replace the poorer of the composition boards now in use. The walls in many of the buildings are dirty, and of a most unsatisfactory color. They should be retinted, in light and soft neutral tones, and kept in good condition. In all of the buildings, many of the children are sitting in seats which are positively injurious to them. In two rooms noted one fourth of the children could not touch the floor with their feet. All new seats bought should be of the adjustable type, and janitors should be required, under the supervision of the principal, to readjust, at least twice a year, such seats as may need to be changed. While the non-adjustable seats are still in use, seats of different sizes should be provided in each room, in order to make better provision for the varying physical development of the chil- dren who are to be found there. Many of the seats in the city should be scraped and varnished before the next school term opens. School Buildings and Equipment 37 A PROPER TYPE OF CLASSROOM Figure 4 shows a good type of classroom, such as is now provided in all well-built schoolhouses. It will be 30' Q" 4'4 ^ D ononoDoDonoDon ononoDoDoDonon ononononoDoDon oDoDoDonoDoDoD oDoDoDonoDoDoD onoQonononoQoQ Fig. 4. Proper Arrangement of Classroom This room has approximately the same floor area as the other (Fig. 3), but the space is better arranged. The windows are banked on one side, and the narrow divisions between the windows, formed by steel I beams, eliminate shadows. The light comes to all pupils over the left shoulder, and more from the rear than the front. The ceilings should not exceed 12 to 13 feet, and the windows should go to the ceiling. noted that the lighting is from one side, that the windows are closely banked, that the heavy mullions which charac- terize the Butte buildings have been eliminated, and that the lighting comes more from the back than from the front of the room. The room is also built on the dimensions of approximately three wide by four long, so as to secure adequate lighting in all parts of the room. By such an 38 Problems in City School Administration arrangement of windows and seats, every child is provided with adequate light, coming over his left shoulder, and no one has to face a glare of light as at present. A NEW TYPE OF BUILDING NEEDED In all future construction, a new type of school building should be provided. A picture of one of the best of our modern types of school buildings is here introduced. It will be seen from the figure that this is a fourteen-classroom building, with eight classrooms on the front and six on the back, and with an assembly hall projecting from the rear in place of two of the lower classrooms. The con- struction is simple, all fancy exterior ornamentation has been eliminated, and the building is designed to provide the best of conditions for the children inside of the build- ing, rather than to produce a fancy exterior to please the architect. The building also is what may be called the elongated type, as opposed to the square type shown in the picture of the Franklin School. A comparison of the two pictures will show what entirely different types of buildings the two are. The picture showing the desirable type also has an advantage in that, at any time, it may be extended by adding four classrooms on each end. To get a better idea of interior arrangements, we also reproduce, on the following pages, three floor plans, show- ing the interior arrangement of another and a slightly larger example of one of the best of our more recent build- ings. An examination of these plans will show the many advantages of such a building over the present type of building in Butte. The lighting arrangements are excel- lent, classrooms are of the proper size and dimensions, but little space is used in corridors, and the building is pro- vided with many of those extra facilities—such as gym- nasium, assembly hall, retiring rooms, teachers' rooms, and special classrooms — which should characterize any mod- ern school building. By means of two sliding doors, which School Buildings and Equipment 39 40 Problems in City School Administration -J UJ D B 1 = H UJ Z 5 2 Ul i __ a r T ) 1 1 Z Z < lAN.TR. JORE lOOM 1 ) i v# •-. . J -1 O n 1 ^ = UJ V3 fi cj V OS (U rt E E bp a. o.c -|e§ £ <" p ^ - be w ^ E.S c tS O'c o e r- »-' "1^ rS o JL +2 ! rt - tub c ^ OS 3 C P C3 __, (u »- CO rS "-M r- t/! TO — rt C u. (U - a. rt :3 o rt g O "-M c o to a; O ^ '^ c B ce ti E o c E nj i^ o-S H .^ _r ed- boys, etc.) dlers, bootblaclvS, etC-) <> In office (cl«rk, office boy, etc.) 7: SkHled trades (painters, paper- s'. Messenger (outdoors, e. eg. Tele- I:?eUrwor^e?e'"tc') •""'"''"' graph, delivery service, etc.) '"s*^' workers, etc.) ... • /I .u -^A,. „„^ /^..tci.lo 8. Service (servants, \v»itcrs, house- 4. Mining (both inside and outside maids etc ) work) 5. Factory work (laundries, foun- dries, mills, etc.) maids, etc.) 9. Housework at home. 10. Miscellaneous and unknown NAME OF CHILDREN Mt FIRST NAME DATE OF BIRTH CHILD FATHER PARENTS OR GUARDIAN (RECORD FIRST NAME OF FATHER AND OF MOTHER OR FULL NAMB OF MOTHER) RESIDENCE NOT ENROLLED AND NOT EMPLOYED 1. To be enrolled in Sep- tember 2. Incapacitated 8. Temporarily unem ployed 4. lUcRiil noh-attendiiht DEFECTIVE 1. Blind 2. Crippled 3. Deaf i. Speech Defect 5. Epileptic 6. Backward 7. Tubercular 8. Other Defects ENROLLED NOT ENROLLED EMPLOYED EMPLOYER NAME AND ADDRESS Day Date Book Page DEFECTIVE 1 ^~ MEMORANDA HOUSES FROM WHICH NO CHILDREN ARE REPORTED HOUSES CLOSED MISCELLANEOUS POR THE DAY FOR THE SUMMER VACANT BLOCK NO. BLOCK NO. BLOCK NO. BLOCK NO. BLOCK NO. —J ====— 1 50 Problems in City School Administration all the information required by the State Law of Montana. This information could be tabulated and presented in such form as is prescribed by the State Law, while the additional information provided should be tabulated and made useful in the determining of educational policies and the enforce- ment of the Compulsory Education Law. Time to Take the Census At present, the school census is taken between the first of September and the first of October. If a school census is to serve its primary purpose, it should be taken earlier in the summer, and should be completed some weeks prior to the opening of the schools. When taken during the sum- mer, the attendance officers can be employed in the work. Should this be done, it would not only decrease the expense, but probably increase the thoroughness of the census. Moreover, when the census enumeration is taken prior to September, it is possible to complete the census fi.le hereafter mentioned, and tabulate material so as to be useful in de- termining, at the opening of the school year, the number of children who should be, and who are not, in school. To be sure, the present law prescribes the date of taking the census. It would seem possible, however, to secure such changes in the law that the enumeration might be taken at the time when it would be of the greatest usefulness. Card Census File While the information called for in Form No. i may be thus entered in the books prescribed by the State Law, for practical purposes the census is kept on Form No. 2, the School Census Card. A card is filled out for each child of school age, and these are filed in the office of the Superintendent of Schools, alphabetically, within the public or private or parochial school attended. A separate file is provided for all children who for any reason are not at- SCHOOL CENSUS CARD PUBLIC ELEMENTARY SCHOOLS. BUTTE, MONTANA LAST NAME FIRST NAME DATE OF BIRTH AGE Parent Mo. Day Year • SEPT. 1 PHYSICAL OR MENTAL DEFECTS (Check /) ! White Col'd Monc'l NATIVE COUNTRY BliDd Crip' Id Deaf _ Speech Epilep- Defect tic Back- ward Taber- Bo, Child Girl Father RESIDENCE SCHOOL ATTENDING DATE ADMITTED Mo. Day Year Use the following code ntinihers in columns dssig- nated by • Date of Birth : 1. Birth Certificate. 2. Baptismal Certificate. 3. Parent's Statement. Cause of Non-Enrolment: Cause of Non- Enrolment: 1. To be enrolled in Sept. 2. Incapacitated. 3. Illegal Non-.\ttcndant. CAUSE OF NON-ENROUMENT it Q UJ Q z LU H 1- < >- -I cc u 5 cc O u. _l 8 I o (/) o -1 CQ Q. o UJ Q z UJ t- h < UI CO o H -1 O O I o 05 o D o z > < UJ -J u o UJ (f) < o ai o z UJ Q 55 Ul o: $ Ul z UJ UJ Q QC UJ z ]tlJU fllOJ UJ o z Ul Q CO UJ a: tu < Z £^ (» 2 < CC 1- z o D 111 H H Q < CO -1 Q. < 3 UJ 11. 0) z < a Z O Q UJ O a < I o (0 Q -1 a 2 m\\ OlOJ cc UJ u. 0) z < cc 1- i I Q UJ o cc < I o CO Q CO _J a Q. *^ a a *. S c. o ,«; i-l fci o*-" o O O " rtt-i 4^-W O ^T^** Left to g Left to g Removed Illness or oyment C( employm a 3 a o.^ "O .oot-vja- o •oB c e3 *^-M ff •*^2 o o a o <1> V-'Vii' <1) s las 2 • « rt ■"3— V "Xo-i"^ ^ O— O M c3---Ov<?|o.ii I-) cj'G o 2 5 g M ca CO— 5 « 2 P. i^«K Census, Records, and Reports 51 tending school as required by law. This file becomes the working basis of determining the number of children within the district who should be in school and a basis of enforcing the Compulsory Education Law. That the information contained on these census cards may be up to date and accurate at the time the file is first instituted, all schools, public, private, and parochial, should be required to file, in the office of the clerk of the Board of Education, information with regard to each child en- rolled in the respective school or institution at the end of the school year. With this complete file of children, both in attendance and non-attendance, each school, whether public, private, or parochial, is notified of the pupils that should be in their school at the opening of the first semester. This list Is, in turn, checked by the respective principals, and the pupils not reporting to their respective schools or to any school supplies the list of pupils who should be im- mediately looked up by the attendance officers. Keeping the Census File Up to Date In order that the census file may be kept up to date, the principal of each school, whether private, parochial, or public, should at the close of each week of the school year send to the office of the City Superintendent of Schools a School Census Card (Form No. 2), for each child admitted who has not been previously in attendance in any school in Butte. In addition, the principal of each school building, whether public, private, or parochial, should at the close of each week send to the office of the City Superintendent of Schools, on Form No. 3, (a) information with regard to pupils admitted on transfer, (b) information with regard to pupils discharged on transfer, (c) pupils discharged without transfer. 52 Problems in City School Administration EDUCATIONAL USE OF THE CENSUS FILE As suggested above, the census file, after the taking of each school census, supplies exact information with regard to all children of school age in the district ; also with regard to the number actually attending school, and the number not attending for unlawful reasons, as well as the number not attending for lawful reasons. When this file is checked, at the beginning of the school year, as against the children actually in attendance, the school officers are supplied with definite lists of pupils who should receive their immediate attention. Through supplementing the census, by the means suggested, during the course of the school year, census officers are provided with definite information with regard to children that are in transit, by reason of being trans- ferred from one school to another, or dropped out of school for unknown reasons, and these lists supply the attendance officers with the information which enables them to follow up, in addition to cases actually reported by principals, all cases of non-attendance, where there is doubt. It is only by thus establishing a complete census file, and supple- menting it during the course of the year, that it is possible to know the actual number of children in school, and the extent to which the schools of Butte are actually keeping the children in school. PRESENT EFFECTIVENESS OF ATTENDANCE SERVICE The primary purpose of a complete school census is, as previously indicated, to supply the basis of enforcing the Compulsory Education Law. While there are no records available which indicate whether or not the schools are reaching all the children of school age in the community, there are available facts which prove that, once children are enrolled, they are kept in regular attendance. This is shown in Table III, on the following page. Census, Records, and Reports 53 s ^ .i| M > 8-S oZi vo r^ •'I- t^oo f^ t^ i-i M ■<*•»-« ovo Hi oZi u^^:^ SS91 pUB 091 00 Ti-i^"^-»j-ints.ot^c< •-' <^ loc^vovo 091 u^q; 5891 PU^OSI N u^VO 00 00 00 LO ON ■'l-^ rr, en ir> rn On w w w M r< ■«*■ -*• oSi UBq:^ ss9t; pu-B oti N^o«O^Tl•ur)hHli^O►-•l-.t-,rl-^ w^vO oti UBq; ss9q puBo£i 00t-idH«0>-'N«^00r^^^r<-<*'t<-> ss9q pu^ oz I 00»-'00>-"000'-'Oc^Nr SS9'J pUB on OOOOOOONO'-'OOOOOio 00 on u^vi% SS9T; puB 001 00000>-'00«0««00'-'0 10 001 UBq:; ss9q; puB 06 0000O00OO'-''-'i-.c^»-.0c«-> On 06 uBq:^ SS9T; puB og OO'-'OO'-'OOO'^OOOOOw VO UBq:). ss9q 00000"^0•-||-|^>c^0 t^t^i-o Hi M opBJO 13 . 00 00 t^ t>>.^ VO LOLO- >> 2 < Q II h q: UJ z < a $ * u X o s S CL < >• u U X Si! q: < 2 H ct D < • 1 < z > < Q ■"2 1- 1-1 ^ iZ d 0) oc »> » (J v» bJ & ^ « >- < Q ! s z < « 1H w K a < 3 I H Z OB < z H H ■< H >:; M O s Xi i !^ h h Q C4 H > w ;?; "ii CQ K 6^ >1 ^, UJ a < -Si ^? • Z hi S S5 S < < H (K 1 < £ ^ € -I U) (T I $ S bJ < ^ p ^ B. (L 2 m * 1 (£ ^1 U > < 1 be 1 =1 t fit J to i T < -a 1 i U . S OT S > O z Q 2 Z CO I < i < < z a ^ a n c3 o ^ £ C '=J «£ urn, rH !.; ^ -^ ^ _ a> g a a s *- 3 S ;2 o fl-S iill a o S o a£s 4; O aa^§ ij * _= jr CO m C5 2 '=' 4) « O S_3^ 3 «- O C3 o 32 'Ift^Ct-OOOJOflM Census, Records, and Reports 55 5. A uniform system of reporting to the Superintendent the cases investigated by the attendance officers, and the results of their investigations. The Teacher's Register or Blotter There is used, in the public schools of Butte, a loose- leaf daily blotter. The use of this blotter causes the teacher to copy, during the course of the year, the names of all the pupils in her class not less than ten times. In place of this loose-leaf blotter, we v^ould recommend the use of Form No. 4, Attendance and Scholarship Card. If deemed desirable, a loose-leaf blank could be substituted for the card. Not only v^ould the substitution of either the card or loose-leaf form obviate unnecessary copying of names, but such a form v^ould greatly facilitate the transfer of pupils, the individual attendance and scholarship card being sent to the school to v^hich the child is transferred, in the same v^ay as the admission, discharge, and promotion card is now sent. The adoption of this attendance and scholarship card would not only supply the data on at- tendance needed for the enforcement of the Compulsory Education Law, but it would make possible a simplification of the present monthly report and summary for the semester. The simplification of the present blotter, monthly report, and isummary for the semester is greatly to be de- sired. Moreover, the attendance and scholarship card, to be filed at the end of each school year with the principal, would serve as a cumulative attendance and scholarship record for the child during his entire school course. Report of Principal to Attendance Officers The report of cases by principals to attendance officers IS now made orally, only the name and the address of the child, as a rule, being given. That the present effective- ness of the attendance service may be increased, we be- 56 Problems in City School Administration lieve that a uniform method of reporting these cases should be introduced. To this end, we recommend the introduc- tion of Form No. 5, Absent Report. This is a simple form, giving merely the requisite data for the location of the child, statement of amount of absence during the period in question, the date of attendance officer receiving and making a report on the case, and the result of the investi- gation. Such a record not only serves as the basis, on the one hand, for the attendance officer reporting his work to the Superintendent, but also as the basis of the principal keeping the official records of the school and of making her report to the Superintendent. Report of Principal to Superintendent It is required at the present time that the principals report, monthly, to the City Superintendent on truants and non-attendants referred to the attendance officers. The re- port includes the name, age, and grade of pupils; also, whether or not the child is a truant or merely a non- attendant, and the result of the investigation by the at- tendance officer. While these reports are sent regularly to the office of the City Superintendent, they are by no means filled out either tmiformly or completely. To the end that the principal's monthly report to the Superintendent on truants and non-attendants shall be made uniform, and that the data included therein shall be complete, we recom- mend the substitution of Form No. 6. Report of Attendance Officers to Superintendent All reports at present made by truant officers to the Superintendent are essentially verbal reports. To be sure, each attendance officer keeps memoranda of the cases handled by him, but, so far as we know, no formal reports are submitted by the attendance officers. Such formal reports are, however, required by law of REPORT ON ABSENCE PUBLIC ELEMENTARY SCHOOLS, BUTTE, MONTANA AST NAME FIRST NAME SCHOOL GRADE SIGNATURE OF ATTEND- ANCE OFFICER ESIDENCE REPORT OF PRINCIPAL 1 REPORT OF ATTENDANCE OFFICER REPORT SESSIONS ABSENT DATE Received DATE FILED Absence Lawfal Absence Unlawful Date of Prob- able Return Date Com. to FROM 1 TO 1 Ind. School MO. DAY 1 MO. 1 DAY Mo. 1 DAY MO. DAY MO. DAY MO. 1 Day 1 2 3 1 4 1 USE CODE NUMBERS ON BACK OF THIS CARD DESIGNATED BY* > m Cs> K) t-* 3 o n - ^ H -H ►O Crq Cu Oj t\J t-» o o n •<: o re • 3 '^ p vO00vlO\ai45^OjN)i-' :z^ o 1 a § |o i ^ cr 5. o 5' f" " 3 o ^U ^ i^ 3 '^ ■-1 (T> i-K r4 3 "T QJ o C/3 it.. 2 "5 - |o 3 ^ P is. 5- (T> _^ r.^ 3 CI 3* ^ 3 I p r* ^ r t-^ (T) O fT> 3 r.^ i-t, ^ O O C^ Cfq crq O O O O o 3 p p rt) ^ ►-. O '^ G. a ^ 3 3 3 CL o o ,-. w CO o P P ^ o o n> _ _ ?T 3 ^3. O o •a 3 n3 "• ~- o 3- £- O -^ 2- ■ o o > o o m* ^o CD On Ol Jii. C/i N t—i ►J 3 ^ 3 ^ t— 1 3 o 2 2c 3 <1 p 1— 1 3* o 3* C/5 8 3 p ^ HH " •§ n V-" 3 c 5' ^. 3 ^ O O 3 •-t * • n n ^ a- o^ 1- (T) P rt) P 3 &■ 3* ^ 5! S o p 3* P 52. 3^ 3 CfQ co' 3 t^ p o ^ (-(- p as. OR MONTH OF_ PU SCHOOL.. PRiNCiPAL, ^iNCIPAL I O— ABSENCE UNLAWFUI- Total No. Cases Investigatod A^-B — O Committed to Industrial School 12 13 Tot. 1 2 3 Tot. Mo. DAY t C. Abe 1. ' 2. ] 3. ] ence Unlawful t rrnant Qhild. Parental neglect. [Uegally employed FOftM VII. MONTHLY REPORT OF ATTENDANCE OFFICER 131 iRi m pri P-MP-MTARY SCHOOLS BUTTE. MONTANA FOR MONTH OF CASES FOR INVESTIGATION REPORT OF ATTENDANCE OFFICER " SCHOOL BSCBITBI) [Pending at End of of Month A — ABSKNCB LAWFUL B— DROPPED PUPIL C— ABSENCE UNLAWFUL Total No. Case* Investiaratod A-B_0 Committed to Industrial New Old Total 1 2 3 4 5 e Tot. 1 2 3 4 5 6 7 8 9 10 11 la 13 Tot. 1 2 3 rot. School ——==== p_ Absence Lawful: 1. Illnees of child. 2. Illness or death la fflmlly. S. Quarantined. 4. Poverty. 5. Court. 6. Inclement weather. Dropped PnpU; 1. Under compulsory school aee 2. Incapacity (physical). 2. Incapacity (mental). INTERPRETATION OF CODE NUMBERS IN COLUMNS' 4. Indifference to school work. 5. Left to go to a private school. 6. Left to go to a parochial school. 7. Removed from the city. 8. Illness or death in family. 9. Economic status of family (obtained employment certificate). 10. Economic status of family (not obtaining employment certificate). 11. Committed to the Industrial School. 12. Kept at home for private tuition. 13. Unknown. Absence Unlawful i 1. Truant child. Parental neglect Illegally employed. PRJNCIPAUS MONTHLY REPORT ON ABSENT PUPILS PUBLIC ELEMENTARY SCHOOLS BUTTE, MONTANA FOR MONTH OF_ -19— SCHOOL. ==^=1:3: PRINCIPAL. CASES FOR INVESTIGA" noN REPORT OF PRINCIPAL Name of PupU III REU]SlVXa> Pending: at End of Mouth A—ABSENCE LAWFUL 1 B— .DKOPPED PUPIL C— ABSENCE UNLAWFUL i Total No. Cases InvestiBatod A—B—O Committed to Indne^trial School New Old Total 1 a 3 4 5 6 Tot. 1 2 3 4 6 6 7 8 10 11 la 13 Tot. 1 a 3 Tot. Mo. DAT Total = = ll INTERPRETATION OF CODE NUMBERS IN COLUMNS Absence Lawful: 1. Illness of child. 2. Illuess or death in family. 3. Quarantined. 4. Poverty. 5. Court. 6. Inclement weather. Dropped PnpUi 1. Under compulsory school age. i. Incapacity (physical). S. Incapacity (mental). 10. 11. 12. 13. Indifference to school work. Lieft to go to a private school. Left to go to a parochial school. Removed from the city. Illness or death in family. Economic status of family (obtained employment certificate). Economic status of family (not obtaining employment certificate) Committed to the Industrial School. Kept at home for private tuition. nnkoown. C. Absence Unlawful < 1. Truant child. 2. Parental neglect. 3. Illegally employed. NA FOR MONTH OF.. _. 19 ATTCNDANCe OCPfCER ATTENDANCE OF FIC :ef I UPII. UNI.AWFUI. Total No. Cases Investigated A — ^B— O C<»mmltt0d Co Industrial © 10 11 12 13 Tot. 1 2 s Tot. .School — 1 f ■ ■ JMNS* !ate) . ertificate) . C. Absence UnlaT^nls 1. Truant child. 2. Parental neglect. 3. Illagally employed. Census, Records, and Reports 57 attendance officers. To the end that systematic record may be available on the work of the attendance officers, more particularly that there may be at hand evidence of the effective v^ork now being done, we recommend the adoption of Form No. 7. NEED FOR MORE EFFECTIVE COOPERATION IN ATTENDANCE WORK In order to determine whether or not all the children of school age of Butte are in school, there is need of a com- plete census. To make this school census effective, it is necessary to have records of all children who are actually in school, and of current changes in school enrollment. At present, there are no reports made to the Board of Educa- tion with regard to the children enrolled in either private or parochial schools. It is incumbent by law. Section 11 04 of the General School Law of the State of Montana, that the principals of these schools make such reports. That is, the principals of these schools should be requested to comply with this law, and to provide the clerk of the Board of Education with the same data on enrollment and changes herein, as are requested from the principals of public 'schools, using in all cases the same blank forms in making said reports. If the children of Butte are to receive the education which they should receive, it is necessary to have an effective enforcement of the Compulsory Education Law. So far as the public schools are concerned, this law seemingly is well enforced. No facts are available with regard to its enforcement in private and parochial schools. If the Com- pulsory Education Law is to be enforced most effectively, the same records and reports on absence, truancy, etc., should be required of the principals of private and parochial schools as the commission recommends should be required of the principals of public schools. Since it is possible, under the law, to require such in- 58 Problems in City School Administration formation of private and parochial schools, we feel that the information will be readily given, and that not only will this information be readily given, but when it is understood that the purpose of this information is to secure to every child of Butte the education to which he is entitled, all concerned will willingly cooperate to this end. ADVANTAGE OF SIMPLIFYING PRESENT SCHOOL RECORDS There is need, as we shall see in Chapter VI, of col- lecting additional information on the actual workings of the schools, if there is to be at hand an adequate fact basis for measuring the efficiency of the schools, and on which to base administrative action. On the other hand, certain of the present reports should be simplified, such, for exam- ple, as the teacher's monthly report and the principal's monthly report. The need of simplification is particularly evident in the case of determining the promotion average of pupils; also in the record scholarship card which is sent to parents monthly. Much of the detailed work involved in determining the promotion average of children and in making out the record scholarship card could be avoided, if the monthly record of the child for each of the several subjects should be regarded as cumulative. That is, if the scholarship mark given for the last month of the school term should be recognized as the teacher's estimate of the effort and achievement of the child for the school term, it could be substituted for the present promotion average, which is now determined at such a cost of energy and time on the part of teachers. SUMMARY To summarize: there is need, in the opinion of the Survey commission, of making the present school census more complete; this school census should then be made the basis of checking the number of children who are illegally Census, Records, and Reports 59 absent from school, whether public, private, or parochial, and of enforcing the Compulsory Education Law. To this end, we believe that a school census as outlined above should be taken and that the above-suggested forms for reporting absence to attendance officers, the monthly report of prin- cipals on absence cases, and the monthly report of at- tendance officers be introduced. Should these recommenda- tions be put into effect, taking into consideration the present excellent service of teachers, principals, and attendance officers and the present excellent attitude of the community toward school attendance, there is no reason why children in Butte should be absent from school any considerable length of time without lawful reason. Moreover, if the above suggestions with regard to simplifying present re- ports are put into operation, teachers will be relieved of considerable unnecessary detail, whereas if the recom- mendations in Chapter VI with regard to data on school activities are adopted, there will be at hand not only in- formation which will supply the basis for improving meth- ods of instruction and of adapting the course of study to the needs of the children, but also of judging of the effi- ciency of instruction and of the work of the system as a whole. CHAPTER V FINANCE AND ACCOUNTS (i) Costs of the School System Compared with Those of Other Cities npHE members of the Survey commission have spent •*■ much time in trying to calculate and compare the costs for education in the Butte school district with costs for education in other cities where costs are comparable, but they have finally been compelled to abandon the attempt to make an accurate comparison, for the reason that accurate comparisons are not possible with the present system of accounting. DIFFICULTIES ENCOUNTERED IN COMPARING COSTS In the first place the Butte school district (District No. i) is many times larger than the city proper, and the property valuation of the school district is about twice that of the city itself. The total population within the city is given by the United States Census for 1910, and also has been officially estimated for 191 1, but how many people live in the Butte school district the Survey commission were not able to ascertain. In the absence of such information the per capita cost for schools, based on the total population of the school district, could not be determined. On the basis of the expenditures for 1912-13, which were $380,- 593.00, and an estimated total population in the school district of 75,000, the per capita cost, based on total popu- lation, would be approximately $5.07. In the absence of any population data, the commission have been compelled to use the figures given in the last printed volume of Financial Statistics of Cities, issued by the United States Bureau of the Census.^ This contains ^Financial Statistics of Cities, 1911 (Washington, 1913). 60 Finance and Accounts 6i detailed statistical data as to the expenses of all cities in the United States. The census figures show a total ex- pense for 191 1 of $250,000 for education in Butte, and a per capita on total population cost of $5.42. The mem- bers of the Survey commission have conferred with the clerk of the Board of School Trustees, the county assessor, and the county treasurer, but have not been able to arrive at any better estimate, though they feel that the United States Census figures for Butte are too high, for the year taken. COMPARATIVE PER CAPITA COSTS Using, however, for purposes of comparison, the United States Census figures, even though they are manifestly too high, and comparing the cost for education here with the cost in the same twenty cities used in Table VI, Chapter VI, in comparing the percentages of children under 15 years of age in such cities with conditions in Butte, we get the table on page 62, which shows comparative costs in ten Western and ten Eastern cities. When the much higher costs for labor and materials in Butte, the materially lower pay for teachers in Eastern cities, and the much larger number of children to be edu- cated in the ten Eastern cities, as pointed out in Chapter VI, are all taken into consideration, even the high United States Census figures for Butte seem low. It must be said, how- ever, that of the cities selected for comparison with Butte, 75 per cent, are noted for the high quality and large effi- ciency of their schools. It would, of course, have been possible to select cities for comparison with Butte which would have resulted in a more favorable showing. (2) Costs as Shown by the Present System of Accounting When the Survey commission turned from comparative costs to the cost of education in the schools within the dis- 62 Problems in City School Administration trict, much the same difficulty in obtaining any informa- tion that really told anything was encountered. TABLE IV Showing Comparative Costs for Education, Based on Total Population Cities Per Capita Cost for Schools Per Cent, of City Expenses for Schools Total Population of City Western Cities: Pueblo, Colo Tacoma, Wash Lincoln, Neb San Diego, Cal BUTTE, MONT. . . . Davenport, Iowa . . . . Topeka, Kansas Spokane, Wash Salt Lake City, Utah Des Moines, Iowa . . . Berkeley, Cal Eastern Cities: Fall River, Mass Scranton, Pa Hoboken, N.J BUTTE, MONT. . . Bavonne, N. J East Orange, N. J. . . Yonkers, N. Y Springfield, Mass. . . . New Rochelle, N. Y. Mt. Vernon, N. Y. . . Newton, Mass 4-31 5.20 5-24 5-41 - 42 4.06 4-45 5^42 5.60 6. IS 6.35 6.86 7.04 7.25 8.67 36.5 per cent. 33.9 per cent. 54. 2 per cent, 32.9 per cent. 31 . 8 per cent. 39.6 per cent. 47 . o per cent. 38.0 per cent. 47 . 2 per cent. 49 . 8 per cent. 54.0 per cent. 34-4 47.2 390 31.8 48.1 34-8 32.9 34-9 37-5 35-4 35-8 per cent, per cent. per cent. per cent, per cent, per cent, per cent. per cent. per cent. per cent. per cent. 44,395 83,743 43,973 39,578 39,165 43,028 43,684 104,402 99,777 86,368 40,434 119,295 129,867 70,324 39.165 55,545 34,371 79,803 88,926 28,867 30,919 30,806 DEFICIENCIES OF THE FINANCIAL RECORDS Though the financial records in the office of the School Clerk are kept according to the forms outlined for school districts in the state of Montana, the records are not kept in the form which should be provided for a city of this Finance and Accounts 63 size. The forms in use are suited to a country district or a village, rather than to a city such as Butte. From the records as kept, though they are kept very neatly, and apparently very accurately, little or nothing could be told, without much labor in recalculating the items throughout, as to what instruction, operation of plant, and plant-maintenance were actually costing per pupil or per room in the schools of Butte. Some tabulations made, in- dicated differences as large as $5.00 per year per pupil for instruction alone, in two of the schools. This may be all right or it may not, but the present methods of ac- counting do not tell anything as to existing conditions. These differences are only what might be expected here. As is pointed out in the chapter on the school plant (Chapter III), small buildings are much more expensive to operate than large ones, and the instruction in them is less efficient. If good cost figures were available there is little doubt that the Board of School Trustees would at once abandon the policy of erecting them. If figures were available it would doubtless be found that the per capita cost for education in such schools as the Brookside is twice as great as in such a school as the Emerson, with a much less efficient type of education pro- vided, and that the cost in such schools as the Madison or Harrison is twenty to thirty per cent, higher than in the larger city schools. The books at present show almost nothing as to the actual costs for instruction in the schools, or in different schools, and the Survey commission have been compelled to depend, in part, in making their recom- mendations for the reorganization of the building equip- ment of the district, on their knowledge of the financial experiences of other cities having somewhat similar con- ditions. No one in particular is to blame for the present condition, as the books are kept according to state forms and according to the plan which has been followed for many years. 64 Problems in City School Administration RECOMMENDATIONS The Survey commission strongly recommend that the School Clerk be instructed to prepare a new form of cost- record book, using the standards for accounting approved by the United States Bureau of Education and the United States Bureau of the Census, and that he then reorganize his methods of cost accounting so that each item of ex- penditure will be distributed, in its proper place and proper proportion, among the different schools and administrative offices of the district. We herewith append a form (Form 8) showing the kind of bookkeeping which the commis- sion recommends. With such a system of bookkeeping it would, at any time, be possible to determine the per-pupil cost for in- struction, the per-room cost for any form of service or supply, or the per-building cost for any item of maintenance or upkeep, and to check wastes wherever they may be found. The Survey commission have been led to feel that there are many small wastes in the school system which could be remedied, to the advantage of the schools, if only a good accounting system were in use from which the School Clerk or the Superintendent of Schools, or the two acting in cooperation, could from time to time check up the different cost items for the different schools. If such figures were available, to mention one item to illustrate the value of such accounting, the Survey commission have no doubt that the present practice of building small schools, near together, would be at once discontinued, because of the greater cost for instruction and maintenance which would be shown by such a system of accounting. The Survey commission wish to add that they have gone over the matter in some detail with the School Clerk, and have pointed out to him the value of such a system of bookkeeping and standard-form accounting, and that he is both willing and anxious to reorganize the books according to the standard forms and individual school-record plans suggested to him, and as shown by Form 8. PART II The Instructional Problem CHAPTER VI THE CLASSIFICATION AND PROGRESS OF PUPILS npHE population of the city of Butte, as given in the ■*■ census of 1910, was 39,165. School District No. i, comprising a larger area than the city, has a population estimated at from 70,000 to 75,000. While there are no available data on the character of the population of District No. I, this probably differs little in character from the population of the city. CHARACTER OF THE POPULATION OF BUTTE The population of the city of Butte is characterized by the large percentage of native born with one or both parents foreign born, by the large percentage of foreign born, by the small percentage of school children in pro- portion to the population, by the large percentage of active adult population between 25 and 40, and by the small per- centage of mature citizens 65 years of age and older. Table V (page 68) shows the composition of the popu- lation of certain Western cities, chosen for comparison with Butte. The particular character of the population is made clearer by Figure 9 (page 69). Seventy per cent, of the population of Butte, it will be observed, is of direct foreign descent or foreign born. An analysis of this foreign element shows that it is, on the whole, of the very highest type, coming primarily from northern and western Europe. Nevertheless, the presence in the city of so many of foreign descent and birth makes the work of the schools especially difficult, and makes ^1 68 Problems hi City School Administration TABLE V Composition of Population ^ o as O ^UptO 133^ 13 Up to 14 133^ up to 143^ 14 up to 15 I A 2 B 2 A <{ B J -r 7 A Ib : .... 1a cB . 5 A 6B 6 A 7 B 7 A SB 8 A If, then, the ages of all the children enrolled in the public schools of Butte during the first semester of the school year 191 3-14 are taken as of September i, and the above-normal age limits for entering each of the grades is taken as the basis of classification, the number of chil- dren in each grade under age, that is, ahead of their grade, the number of normal age, that is, up to grade, and the number over-age, that is, behind their grade, is easily deter- mined. AMOUNT OF OVER-AGE Table X gives the number of children in each of the several grades of the public schools of Butte, from under J9;S9UI9S ^U9UJ|tOJ -ua ib;ox 00 00 00 vo r^ »>^vo -^^ vo « 00 ■* 0^00 "100 -^ -xt- -"il- 'it-OO ro M i-i "-I ii-1 00 touoc«^Lr>r<%-*c<^'«(t-cotorot«^M e* 1-* to CO 61-H8I *^ •^ K8I- 81 "^ "^ 81-^^1 "* — -> CO ^Zi- /I M ►H 1-1 « M NO Zi-^91 •-I MM M C4 Cn On ^91- 91 •1 CO 91-HS1 M H4 C< 1-4 00 ^Si- Si t>» _■ « roioLDM Tt-aNa\»->oo On CO Si-^ti ►H M ►-. CO CO t^ CO O^ ^ti- ti M CO CO •^ CO coC*4 c< ti-^ei « w t^crit^OO -.iO(M>-i M M CO CO ■^ i-r)?0 CO r< CO H^i- zi M M CO -^l- -rj- UOTj( Tf »- tv CO zi-Kii COM r« coMOO -^NIOO toc< HI CO ^11- II M covo vo >-■ CO 'ii-Tt ^ "^ r» M ■<♦• u^ t^iO UD M 00 CO II-^OI •-• N •^ O^ 00 t^T-H 10 tv •^ C< M M CO M cot- Tj< M c« ^01- 01 c« t-i t^ C> M 10 »^t- «£> CO CO •-• c< vo u-» 0^«0 U5 « 00 CO oi-S/^6 M u-iso 00 r^ coco (N Lo^ M M\0 vOO> -^ w tv CO H6- 6 vo 0^ ^ votH 0^ CO t-" M vo c< 00 10 N "H CO 6-K8 00 00 ON 'tiiO Oi ^> •-• M VO t^r-l U3 CO CO H8 - 8 10 I^Tj< 05 ■* U-) c< M CO 1^00 00 M c» CO 8-H^ 00 vO(N CX) "^ -xl- to t^Olrt to CO CO HZ- z LOOOCO t^ -1 Ot-h CO r» M ■«*■ ON CO Z-H9 to ^9- 9 tv 00 10 9 -isp^n N N -1 MMNMcoroTj'-^Hi^ irjvo vo 1^ tvoo 00 7S Classification and Progress of Pupils 79 6 up to 1 81/^ to 19. In each grade, the numbers in the columns to the left of the heavy black-faced figures indicate the children ahead of their grade, the numbers set in heavy- faced black type indicate the children up to grade, and the numbers in the columns to the right of the heavy black- faced figures indicate the children behind their grade. Table XI shows more clearly than Table X the number of children in each grade in the elementary schools of Butte under age, normal age, and over age: TABLE XI Number and Per Cent, of Children Under Age, Normal Age, and Over Age Grade Under Age Normal Age Over Age 0) T3 I I B 1 A 2 B 2 A 3B 3 A 4B 4A SB 5 A 6B 6 A 7B 7 A 8 B 8 A All grades 22 30 82 29 47 28 35 27 35 21 20 21 19 13 30 9 699 216 235 142 204 140 152 109 127 99 105 88 106 65 68 48 78.3 55-7 46.3 36.4 36.7 36.2 34 31 28 28 27 26 32.3 30-4 32.4 30.2 177 142 191 219 305 219 258 210 282 226 261 223 203 136 112 102 19.7 36.6 37-5 56.2 54-9 56.6 58.0 60.7 63.6 65-3 67.6 67.2 61.9 63.6 64.1 468 7-4 2,603 41. 1 3,266 Si-o 898 388 508 390 556 387 44S 346 444 346 386 332 328 214 210 159 6,337 It is astonishing to find that, of the total number of different pupils in the elementary schools during the first 8o Problems in City School Administration semester of the current school year, only 468 were ahead of their grade, as compared to 3,266 who were behind. In a word, taking the enrollment as a whole, out of each 100 children : 8 are ahead of their grade, 41 are up to grade, and 51 are behind their grade. Conditions are the worst in the 6 B grade, where out of each 100 children: 5 are ahead of their grade, 27 are up to grade, and 68 are behind their grade. While conditions are the worst in the 6 B, even In all the other grades, with the exception of the i B, the per cent, of over-age children is extraordinarily high, ranging from 36.6 per cent, to 67.2 per cent. The conditions shown to exist in Tables X and XI are shown even better in Figure 11, on the opposite page. DEGREE OF OVER-AGE The seriousness of children becoming over-age depends on the grade they are in, and on how far they have fallen behind their grade. Table XII (page 82) shows, by grades, the number of children over-age a given number of years. It win be observed that of the 3,266 children over-age 1,790 are less than i year behind their grade, 891 are i and less than 2 years behind their grade, 386 are 2 and less than 3 years behind their grade, 199 are 3 years or more behind their grade. The significance of these children being behind their grade lies in the fact that if the 1,790 less than i year over- age continue in school and advance regularly they will be between 15 and 16 on completing the elementary school; Classification and Progress of Pupils 8i PERCENTAGES OF PUPILS WHO ARE UNDER AGE , OF NORMAL AGE . AND OVER AGE GRADE UNDER NORMAL OVER B ^ tM^^MI aW/A iwmM MMMi B mwM tMM^ ^\W^ aWM kmm^ m^w^^ B WA t!M\^^ xWmWI A WM (mM«^ MM^ e WM IM1« MM»1 aWA \WmW\^ m\\\w^ Mm^;^^ B V/M ^^ eMM ««^ MM«I aW/A ^^ MMm MMm MM\W1 B m » «MM \^M^ PM^ aWA fm «\m^ \\mm\^ mMM^ ^M f^ \m%m^ MMM $^»M^ aV/A Ix^ M\W^\^ k\i\\\\\\\\\\; mwwwj B W///M tMx^ ^^^mm m%wi aWA K^ m\\\mN ^wmw m\m^ PER CENT. 20 40 60 80 100 TOTAL , ALL GRADES *. UNDER AGE 7.4 OF NORMAL AGE 41.1 OVER AGE 51,0 Fig. 11. Age Distribution by Grades 82 Problems in City School Administration 3 e2 00 00 00 o vo t^ t^vo -^vo vo N 00 ■* o o ooo o o Looo M- •* -^ -^co t<^ N »-■ i-i in 00 c<^Lr»toLorOT*.t«iTl-c^t^rr^c<^«S» N h. ro to 1 1 > o Total over Normal Age to II N «o O H <-• 00 -^hOO r^>MVO H-toro>-i O lMi-ic«i-ic4i-iC4Mr4M 2 Years and Less than 3 C* P< M t<^ rh to -^ to t«^ to H4 00 to I Year and Less than 2 I-* d M LO t^ VOOO VOOOVOOOVO tN.Lr)T*-N 00 b P toVO VO O NOO w^OOOVOOO MVO io»-« O o Of Normal Age Ovvo mN -^hO N 0^^-»0^ t^^oo vo moo oo OM-i to'^O -*"^0 W OnOOO O^vO -* to to < u i Total Under Age N O N O t^oo ir^b^u^w O «-■ OtoO Os ^ '<*• ^53 f» O t* OvVO 00u^iyiu-)C>O O t^toO Ov C< tOOO M-»*"C«tor»-«t*«Si->»-itO I Year and More •-I « r« iH t« 00 1 3 MM(^f<«OtO'7777m -^ 7TH GRADE ^^^/^y^yy^yy/yy/j 6^" GRADE 5^" GRADE 4"^" GRADE SCORES Fig. 15. Results of Composition Tests This figure represents the percentage of children in the several grades who made the given scores in composition. For example, 1.7% of the fourth-grade children wrote compositions scored at 0; 43.8% of the fourth-grade children were scored at 1 ; etc. By following the median lines, the overlapping of ability from grade to grade is dis- closed. l6o Problems in City School Administration liked Arithmetic and $33 to the one for spelling, and $32 for the one who liked Geography." Sample 3, rated at 3; written by a fifth-grade girl, 12 years old. "If I had one hundred dollars, I would take five per- sons up to symons and spend twenty dollars on each per- son, and they could have anything they liked to buy. After they had bought what they wanted, I would ask them if they were pleased ? and if they said no I would tell them to go back and change the dry-goods, that they had bought and buy exactly what they really wanted, or needed, and if they were not satisfied then I could do no more for them because my hundred dollars would be spent." Sample 4, rated at 4; written by an eighth-grade boy, 14 years old. "If I had one hundred dollars to spend to please five persons I would first kind of figure out what the things a certain five persons would like best. "First I would buy my cousin what he wished, that is a good baseball outfit. It would cost about ten dollars for the playing materials such as gloves, bats, etc. Then I would get him a five dollar baseball suit and cap to match. He would like a lot of candy and fruit and such things so I would spend another five for that. "Second I would by my brother a good fishing outfit consisting of a five dollar pole, a one dollar, line, two dollar, reel, two dollars worth of hooks, five dollar pair of boots, two dollar fishing coat, a dollars worth of leaders and two dollars for a trip to some good fishing place. "Third I would fit myself out in the same way. "Fourth I would get my father a morrison chair for ten dollars, and a smoking jacket for ten more. "Fifth as I have no mother I would get my aunt a new hat with ten dollars and a new silk dress with the rest of the money." The Achievements of Pupils i6l Sample 5, rated at 5; written by an eighth-grade girl, 15 years old. "There are five little children that live near us who are very poor. They seldom have any new clothes and less often any toyes. ''On Christmas and other days when we children have toys these children may be seen looking at us with longing eyes, and Easter time they even seem envious. 'Well I would first buy each child a pair of shoes about three and one half dollars. Then I would buy the girls, three of them, new dresses. The boys new suits. Which would cost about thirty dollar. Of course the girls would have to have hats. I would get simple ones but pretty. Then the boys must have caps " Sample 6, rated at 6; written by an eighth-grade girl, 14 years old. "If I had one hundred dollars to spend for persons who liked different thing, I would spend about one-half of the sum for a short camping trip for myself and parents. "With the remainder of the money I would buy a few good books and other articles I desire. I would use part of the money for spending money throughout the summer, and, if after this, there were any of it left I would use it for things I needed at the beginning of school." Sample 7, rated at 7; written by a seventh-grade girl, 13 years old. "I read a pamphlet once upon how to spend money wisely, in benefiting other people, so as I have received $100.00 I intend to spend it wisely. "Yesterday I went to a German family, who were strangers here, having just come from Germany, and needed help very badly. The mother was a kind motherly looking woman, who I know I could depend upon, so giving her a check for $40.00 for clothing and food, I departed, leaving their faces shining with relief and gratitude. i62 Problems in City School Administration "That evening, coming home I met two ragged, but clean looking children, one of them crying very bitterly, so stopping I asked them what was the matter, the little girl said, *I am looking for a doctor.' Then she began crying. I took her and the little boy home with me, which was not very far away, and then I told her to tell me all about it. Mother fell down the cellar this morning, and broke her arm, she sent me for the doctor, but I cant find him, and if I did we wouldn't be able to pay for it." There were no compositions rated higher than 7 by the teachers, even though, on the whole, their marks were liberal. Evaluation of the Composition Work A study of the table giving the ratings upon composi- tions written by the children of Butte, along with an ex- amination of the sample compositions reproduced to illus- trate the merit of each position on the scale, reveals four facts which are worthy of note: First, the composition work is formal, rather than free and imaginative. Second, the marks fall low on the scale, throughout the grades. While no standard of achievement has yet been established with which to compare the ratings of the several grades in Butte, certain fifth-grade classes in Maryland have been found to average 5.15 as compared with 2.80 for the fifth grades in Butte. Also, certain seventh-grade classes in Maryland and New York City have been found to aver- age 5.75 to more than 7.0, as compared with 3.76 for the seventh grade in Butte.^ Third, there is relatively little growth from one grade to the next, the median score being raised less than two points from fourth to eighth grade. Fourth, the wide variation in ability among the children IF. J. Kelly, Teachers' Marks, Their Variability and Standardisa- Uon, Teachers College Contributions to Education; New York, 1914. The Achievements of Pupils 163 in any one grade raises the question here which was sug- gested in connection with spelHng, whether due attention is being given to the individual needs of the children, or whether the instruction is not being given to all members of the class alike, regardless of whether such instruction leaches the children's individual needs. The marked contrast between the excellent results in spelling and the results in composition probably means that the formal side of instruction is being stressed at the ex- pense of initiative and self-expression on the part of the pupils. In no other phase of school work is the harmful in- fluence of repressing the child's individuality more clearly reflected than in his written language. Practice in express- ing thoughts zvhich are his own is the only way by which a child can develop the power to write and speak good Eng- lish. Repeating from memory facts in geography, history, or science is not closely related to the task of organizing one's own thoughts. Even a thorough knowledge of all the rules of grammar does not insure the writing of good English. (3) PENMANSHIP The Penmanship Tests To secure specimens of handwriting by which to judge of the efficiency of the penmanship work done in the schools, all of the teachers in the elementary schools above the first grade were asked to have the children write, as carefully as they could, a familiar stanza which the teacher wrote on the blackboard. Afterwards, the children were to write the same stanza over and over again for four minutes, as rap- idly as they could, ''still zvriting zuell/' In the following discussion, only the careful writing will be considered, be- cause it appears from an examination of the speed-writing specimens that the time limit was not carefully observed by some of the teachers. The papers were collected and stamped with a code 164 Problems in City School Administration number by which to Identify the building and grade. About a third of the papers from each room were then shuffled so as to mix thoroughly the papers from the various build- ings and grades. About eighty teachers then scored the papers under the direction of a member of the Survey com- mission. Scoring the Papers The Thorndike Scale^ for the measuring of handwriting was used as a means of scoring the papers. This scale con- sists of reproductions of samples of handwriting, ranging in merit from o to 18. At most of the points on the scale two or three samples of different styles of writing are repro- duced. The samples were selected, because in the opinions of many competent judges the differences in merit between the samples appearing at the successive steps on the scale are approximately equal. When the teacher rating a paper determined to which one of the samples on the scale the child's paper most nearly corresponded in merit, she marked the paper with the score attached to that sample on the scale. Thus the papers were all rated between o, which was completely illegible, and 18, which was practically perfect handwriting. The Results In Table XX, given on the next page, are given the dis- tributions of the scores made by the pupils of the successive grades from second to eighth inclusive. It will be observed from this table that the median scores for the several grades are as follows: Second Grade 8.2 Third Grade 8.0 Fourth Grade 8.8 Fifth Grade 8.9 Sixth Grade 11.6 Seventh Grade 11.2 Eighth Grade 12.1 1 E. L. Thorndike, Handwriting. Teachers College Record : March, 1910. The Achievements of Pupils 165 TABLE XX The Distributions of vScores in Penmanship by Grades Scores Grades o I 2 3 4 S 6 7 8 9 10 II 12 13 14 IS 16 17 18 Total papers . . Median scores S 22 21 29 28 42 7 29 5 7 2 2 21 44 86 41 3 16 24 42 55 20 21 IS 2 3 I 3 3 12 56 61 16 17 IS 6 4 2 I 20 25 9 32 44 17 10 9 10 6 3 3 IS 29 II 25 12 19 16 6 12 2 I 196 194 152 I 3 7 IS I 23 21 9 9 IS 17 3 :24 .2 8.0 8.9 II. 6 II. 2 12. 1 This indicates a rather singular irregularity in the prog- ress made from grade to grade. Of the 3.9 points improve- ment from the second to the eighth grade, 2.y points are made between the fifth and sixth grades.^ There is no cer- tainty, of course, that this should not be so. If, however, there is a particular period in the development of the child at which habits, such as handwriting, can be so much more readily fixed than at other times, then drill should be cur- tailed at other points and concentrated upon that period. 1 This may be partially accounted for by the fact that No. 10 on the scale has only one specimen representing that degree of merit, while the steps on either side of it have more than one specimen. There- fore, judgments tend to bunch up both above and below 10. l66 Problems in City School Administration The problem Is so clearly indicated in these results that ef- fort should be directed toward its solution by further in- vestigation. As in spelling and composition, a very wide range of abilities in penmanship is found in each grade. This is best represented in Figure i6.^ Some children in the second grade surpass the ability of the median eighth-grade pupil, while some in the eighth grade fall below the median second-grade pupil. This variability may be accounted for by two facts : First, some classes average much better than others in the same grade. For example, one second-grade class aver- aged 5, while another second-grade class averaged ii. In the same way one eighth-grade class averaged 9, while an- other eighth-grade class averaged 16. Second, the observation of members of the commission while they were visiting the schools did not disclose any case where practice in penmanship was limited to those in the class who needed it. The children who could write very well were spending the same time as the others upon exer- cises. One other feature of the penmanship deserves attention. The letters which are formed out of the much practiced oval are nicely made by the children, as a rule. The gen- eral character of the writing, however, reveals a lack of control of letter forms. It would seem that, in many cases, practice in writing words and sentences as they occur in the regular daily work of the pupils is not given the attention it deserves. The formal drill on muscular exercises is overemphasized. This does not mean a condemnation of the muscular-exercise drill, but it does mean its subordina- tion to the exercises in real writing. 1 This figure represents the percentage of children in any grade who attained each of the given scores in penmanship. For example, of the second-grade children, 2.4% wrote papers scored at 4; 11% of the second-grade children were scored at 5, etc. Note that the median mark for the successive mark changes little at any other point than from fifth to sixth grades. The Achievements of Pupils 167 M12.1 I SCORES 12 3 4 5 6 7 6 9 10 11 12 13 14 15 16 17 18 Fig. 16. Results of Penmanship Tests i68 Problems in City School Administration (4) ARITHMETIC The Arithmetic Tests As a measure of the achievements of the children in arithmetic, the Courtis Standard Tests^ (Series B) in the four fundamental operations, and the Stone Reasoning Problems,^ were used. They were given in two j-ooms in each of ten buildings. The following numbers of classes were thus examined, selected at random: 5 5B classes 5 5A classes 5 6B classes 7 6A classes 3 7B classes 3 7A classes 4 8B classes 5 8A classes Following are the lists of examples and problems as they were given to the pupils. They were printed on good paper so that the children did not have to copy the figures, but simply did their work on the sheets which contained the examples. Blank paper was provided on which to solve the reasoning problems. The following time limits were fol- lowed exactly in all of the rooms: For addition, 8 minutes. For subtraction, 4 minutes. For multiplication, 6 minutes. For division, 8 minutes. For reasoning, 15 minutes. IS. A. Courtis, Standard Tests, 82 Eliot St., Detroit, Mich. 2 C. W. Stone, Arithmetical Abilities and Some Factors Determining Them. Teachers College, Columbia University, 1908. The Achievements of Pupils 169 Addition 927 379 756 837 924 110 854 965 344 297 925 473 983 315 661 794 177 124 136 340 988 386 353 904 547 192 439 486 765 524 140 812 466 355 834 567 384 477 881 266 679 241 796 850 7ZZ \76 783 697 200 Z66 '851 535 323 229 277 445 682 594 481 778 849 157 953 837 882 959 603 118 781 756 222 525 537 664 634 572 226 351 428 862 695 278 168 253 880 788 975 159 471 345 717 948 663 705 450 383 913 921 142 529 819 174 194 451 564 787 449 936 779 426 666 938 932 646 453 223 123 649 742 433 559 433 924 358 338 755 295 599 106 A(A 659 676 996 140 187 172 228 449 432 122 303 246 281 152 677 223 186 275 432 634 547 588 464 878 478 521 876 327 197 256 234 682 927 854 571 327 685 719 718 399 516 939 917 394 678 524 838 904 923 582 749 807 456 969 293 353 553 566 495 169 393 761 423 419 216 936 250 491 525 113 955 756 669 472 ^2,Z 885 240 449 519 314 409 264 318 403 152 122 Subtraction 107795491 77197029 160620971 80361837 115364741 80195261 64547329 48813139 92971900 62207032 137769153 70176835 75088824 57406394 51274387 25842708 67298125 29346861 121961783 90492726 104339409 74835938 144694835 74199225 91500053 19901563 117359208 36955523 92057352 42689037 109514632 81268615 60472960 50196521 123822790 40568814 87939983 72207316 47222970 17504943 113380936 42556840 125778972 30393060 119811864 34379846 80836465 49178036 170 Problems in City School Administration Multiplication 8246 3597 5739 2648 9537 29 73 85 46 92 4268 7593 6428 8563 2947 37 640 58 207 63 5368 4792 7942 3586 9742 95 84 72 36 59 6385 8736 5942 6837 4952 48 502 39 680 47 3876 9245 7368 2594 6495 93 86 74 Division 25 37)9990 68)43520 94)67774 19 25)6775 94)85352 49)31409 86)80066 73)58765 52)44252 37)14467 86)60372 25)9750 68)39508 49)28420 52)21112 39)32760 73)33653 28)23548 54)48708 67)61707 45)33795 76)57000 93)28458 82)29602 Reasoning Problems 1. If you buy 2 tablets at 7 cents each and a book for 65 cents, how much change should you receive from a two-dollar bill? 2. John sold 4 Saturday Evening Posts at 5 cents each. He kept 1/2 the money and with the other ^ he bought Sunday papers at 2 cents each. How many did he buy? 3. H James had 4 times as much money as George, he would have $16. How much has George? 4. How many pencils can you buy for 50 cents at the rate of 2 for 5 cents? 5. The uniforms for a baseball nine cost $2.50 each. The shoes cost $2 a pair. What was the total cost of uniforms and shoes for the nine? 6. In the schools of a certain city there are 2,200 pupils; J^ are in the primary grades, H in the grammar grades, % in the high school, and the rest in the night school. How many pupils are there in the night school? The Achievements of Pupils 171 7. If ^Vi tons of coal cost $21, what will SYz tons cost? 8. A ncAvs dealer bought some magazines for $1. He sold them for $1.20, gaming 5 cents on each magazine. How many magazines were there? 9. A girl spent ]4, oi her money for car fare, and three times as much for clothes. Half of what she had left was 80 cents. How much money did she have at first? 10. Two girls receive $2.10 for making buttonholes. One makes 42, the other 28. How shall they divide the money? 11. Mr. Brown paid ^^ the cost of a building; Mr. Johnson paid ;/$ the cost. Mr. Johnson received $500 more annual rent than Mr. Brown. How much did each receive? 12. A freight train left Albany for New York at 6 o'clock. An express left on the same track at 8 o'clock. It went at the rate of 40 miles an hour. At what time of day will it overtake the freight train if the freight train stops after it has gone 56 miles? The peculiar virtue of these lists of examples in the fundamentals lies in the fact that they are so devised that in each example of a given sort there are an equal number of combinations called for, and these include similar assort- ments of difficult and easy combinations. Because of this fact, it is just as much of an achievement to work one as it is to work any other one. Therefore, the child who works ten has achieved exactly twice as much as the child who has worked five. In the reasoning problems the same principle holds ex- cept that, instead of all of the problems being of equal difficulty, an assigned value has been worked out experi- mentally for each one, so that it is possible to say how much more credit should attach to the correct solution of one than to the correct solution of another. This being the case, it follows that, if the same time be given to the several pupils, the number of examples com- pleted in the fundamentals, or the score in reasoning, fur- nishes a fair basis of comparison between the achievement of one child and that of another, or of one class with that of another. It is not claimed that these tests cover all that teachers are expected to teach in arithmetic, but it is claimed that successful teaching in arithmetic cannot be done with- out developing skill in the fundamental operations and' ability in the simple, everyday forms of reasoning. 172 Problems in City School Administration Scoring the Papers The marking of the papers in the fundamentals was done, also, by a group of teachers under the direction of a member of the Survey commission. Printed answer sheets were provided each teacher, and every example was checked as either right or wrong. No credit was given for an an- swer which was only partially right. The reasoning prob- lems were scored by members of the commission. The Results In the Tables XXI, XXII, and XXIII are given the distributions of the number of examples worked cor- rectly by the children of the various grades. The B and A classes are combined for each group, in order to make the results comparable with the return from other cities reporting by grades. From these tables we see that there is a fairly steady gain from grade to grade in both funda- mentals and reasoning. At the same time, there are seen to be 12 pupils in the fifth grade, 15 in the sixth grade, 5 in the seventh grade, and 4 in the eighth grade who could not finish one example in addition correctly in eight minutes. A similar situation is revealed in the other fundamental operations. While these children above mentioned were not able to finish a single example, there were others who completed twice as many as the average members of the class. This holds true for every operation in the fundamentals and for reasoning problems as well. This condition must result in a very great waste of time during arithmetic periods where so often all of the members of the class wait for the slow ones to complete the problem before new work is assigned. Considerable improvement can be effected if the work in arithmetic is varied for the members of the class so as to give each child, as far as possible, the sort of work which he most needs. It is one of the sources of greatest waste in our schools today that we give to all the children of a class The Achievements of Pupils TABLE XXI 173 The Distributions of the Number of Examples Correctly Finished IN THE Given Time by Pupils in the Several Grades Addition No. of Exam- ples Finished o. I 2. 3- 4 5- 6. 7 8. 9 10. II. 12. 13- 14. 11; 17- 18. 19- 20. 21. 22. Total papers. 157 Median scores 3 . 4 186 119 II 3-9 4-3 5 Subtraction No. of Exam- ples Finished o I 2 3 4 5 6 7 8 9 10 II 12 13 14 15 16 17 18 19 20 21 22 ISS 6.0 I8s 6.3 I 2 7 9 9 12 12 II 12 9 5 7 3 2 I I 4 2 I 119 III 7.6 10.3 the same work, without considering whether a large number of the class might not profit much more by doing something else. There is less excuse for giving uniform instruction and work to the members of a class in arithmetic, than in most of the other subjects. It must not be supposed that effort should be made to bring all the members of a class to the same standard of ex- cellence in any subject. We are not urging that teachers 174 Problems in City School Administration TABLE XXII The Distributions of the Number of Examples Correctly Finished IN THE Given Time by Pupils in the Several Grades Multiplication No. of Exam- ples Finished o I 2 3 4 5 6 7 8 9 10 II 12 13 14 IS i6 17 i8 19 20 21 22 Total papers . Median scores 156 4.6 184 5-5 7.0 III 8.6 Division No. of Exarri' pies Finished o 2 3 4 5 6 7 8 9 10 12 13 14 IS 16 17 18 19 20 21 22 156 187 4.8 7.7 4 2 6 7 4 8 9 6 13 7 10 10 4 9 2 4 2 I I I II 10.7 attempt to produce equal skill in arithmetic among all the members of their classes. However, when some children now in the fifth grade far surpass already the average abil- ity of eighth-grade pupils, it is surely a waste of their good time to be doing the same arithmetic work which is best adapted to those members of the class who can complete no examples in the fundamental processes. To show clearly this overlapping of ability in the successive grades, Figure The Achievements of Pupils 175 TABLE XXIII The Distribution of Scores Made by Pupils in the Several Grades Reasoning Problems Scores Grades 5 6 7 8 30 30 ?6 21 10 8 I I I I 7 20 21 30 35 24 14 12 14 2 3 I I 2 10 13 12 17 20 14 12 6 4 4 2 3 1 I 2 2 ■5 S 5 13 14 A t 6 7 8 Q 10 10 10 II 7 6 12 I-l 4 4 I 14. ic 16::.; Total papers 156 186 119 III Median scores 2.7 4.4 6.3 8.2 17 is given, representing the distributions of multiplication scores of the various grades. Any other one of the pro- cesses could have been used just as well to show how many- there are in each grade who surpass the average ability of the classes above them, or fall below the average of the classes below them. If we can turn the schoolroom into a sort of workshop where each child will be encouraged to seek out problems of keenest interest to himself, and where the teacher will seek to guide in the doing of those things most needful to him, we shall avoid some of the present evils of our lock- step system of instruction, where each child does just the same as every other child. 176 Problems in City School Administration The question naturally arises whether the median score for the children of Butte is higher or lower than that achieved by children of the same grades in other cities. Mr. Courtis, the author of the tests in fundamentals used in Butte, has tested with the same examples and under the same conditions, 131 5 children in Detroit, 20,441 in Boston, and 3618 in other smaller places. Table XXIV gives the median scores made by the several grades in these cities, and along with them, the corresponding scores made in Butte. TABLE XXIV The Median Scores Made by Children in Detroit, Boston, a Group OF Smaller Cities, and Butte, in Working the Same Examples IN the Same Amount of Time Addition Grades 5 6 7 8 Detroit 39 3-7 3-9 3-4 4.6 4-9 4-4 3-9 4-7 4-3 6.7 Boston 7.8 5.6 Butte S-8 Subtraction Detroit S-S 4-9 4-5 6.0 6.2 6.1 6.3 7-3 6.9 7-^ 9-5 8.6 Other cities 8.4 10.3 Butte Multiplication Detroit 3-8 4.6 4.8 4-5 5-S 6.0 S-i 5-2 7.0 l-\ Bo'^ton . Other cities 6.1 Butte 8.6 Division Detroit 2.7 2.0 2-3 4.1 4-4 3-3 4-3 4.8 7-1 S-i 5-8 7-7 8.8 Boston 6.9 Other cities 6.3 Butte 10.7 The Achievements of Pupils 177 MULTIPtlCATION MEDIAN SCORES ^10 K CO 8"^" GRADE a SCORES Fig. 17. in the O 5 10 15 . .^. .. . Representing the percentage of children grades making the given scores in multiphcation. For example //o of the fifth-grade children make a score of 0; 7% make a score of 1; etc. The overlapping of ability from grade to grade is clearly shown various 7% 178 Problems in City School Administratioji ADDITION ANSWERS SUBTRACTION 11 10 1 i i 1 / 1 / y xy ''A » \^^^ 7 7 ^ f BUTTE DETROIT — . BOSTON OTHER 5 e 8 GRADES 5 Fig. 18. Representing the achievements of four groups of children, the Butte children being one group, in addition and subtraction. For example, in addition, the fifth-grade children of Butte average 3.4 examples finished correctly in the time allowed; Boston averages Zl \ Detroit and the other group both average 3.9. The Achievements of Pupils 179 MULTIPLICATION ANSWERS DIVISION It 10 / / / / / // ' // / / #' >^ f f BUT TE — — Uh 1 - BOS OTI- KOII TON — 1 1 1 1 ; / / / / / / / * 1 / 1 / i / • / ^ // / V / / / 7/ / 8 GRADES 5 Fig. 19, This represents the achievements of four groups of chil- dren in multiplication and division. To be read the same as Figure 18. i8o Problems in City School Admiitistration The facts of this table are clearly set forth In Figures 1 8 and 19. It is clear that the results, so far as average or median score is concerned, are very satisfactory in Butte in the fundamentals. While Butte stands a little low in addition, and equal to or above the other cities in subtraction, the standings are high in multiplication and division. Unfortunately, so much cannot be said for the results in the reasoning problems. Here again the city is paying the price of too much formal work and too little inde- pendent thought work. The papers were full of errors, and of a sort which indicated a lack of clear thinking. To illustrate this point, attention may be called to one error which was made by scores of children in all the grades. In so easy a problem as No. 5, which reads: The uniforms for a baseball nine cost $2.50 each. The shoes cost $2.00 a pair. What was the total cost of uniforms and shoes for the nine? many of the children worked as follows: $2.50x9 equals $22.50 the cost of uniforms. $2.00x9 equals 18 the cost of shoes. $22.68 the total cost of uniforms and shoes. Errors of the same sort abounded In most of the sets of papers. The number of problems attempted in the various grades was high, but the score was brought down very low by the great number of errors. There were enough rooms which proved exceptions to this rule, however, to indicate that some teachers have been emphasizing clear thinking Instead of form work. More than half the children in the schools worked fewer than four of the problems in the fifteen minutes allowed. Other children, on the contrary, worked most of them, and often without the use of pencil at all for the majority of the problems. We cannot believe that such wide variation The Achievements of Pupils PROBLEMS INVOLVING REASONING MEDIAN SCORES 5TH gTH JTH QTH 27 4.4- 6^ 8.2 l8i 6^" GRADE SCORES 10 11 12 13 14 15 Fig. 20. Representing the percentage of children making the given scores in reasoning problems. For example, 10% of the fifth-grade children made a score of 0; 19% made a score of 1; etc. The lines representing the median scores for each grade tell about how many in each grade surpass the median scores for the grades above, and how many fall below the median scores for the grades below. 1 82 Problems in City School Administration in ability would be found if the instruction were adapted to secure the development of the native ability in each child. In Figure 20 the amount of overlapping from grade to grade is clearly brought out, and we must here emphasize the urgent need for greater adaptation of the arithmetic work to the particular needs of the individuals making up any class group. (5) SUMMARY As has been pointed out in the sections of this report dealing with the Courses of Study, Chapter VIII, and with the Quality of Instruction, Chapter VII, drill work in the schools is strong. This observation is verified by the high standing w^hich the school system, as a whole, made in the tests in spelling, and the fundamental operations in arith- metic. Whether this drill work is done with the greatest economy of time and effort may be questioned a little in the light of the great variability which is present in the achievements of the members of the same class. No type of school exercise needs more careful adaptation to the individuals receiving it than does the drill lesson. Some excellent penmanship work is done in Butte. However, the system of penmanship now being employed requires keen insight into the fundamental principles of habit formation, if teachers are to avoid some serious mis- takes in its use. This insight is not universally shown by the teachers in the city. Excessive drill on the movement exer- cises, at the expense of daily practice in the writing of good papers, has led, in the case of many children, to failure of control over the muscles used in writing. The result is a general irregularity in letter formations and a domination of the forms used in drill exercises. Care upon this point will correct the work in many of the rooms which stand low. The penmanship will then be very satisfactory in the city as a whole. In composition, and again in reasoning, we see revealed the results of what is perhaps the most serious error in the The Achievements of Pupils 183 teaching method now practiced in Butte. FilHng children's memories with textbook facts does not make independent thinkers of them. Opportunity for self-expression should be freely given in kindergartens, and as freely given in all the grades above. What children think out for themselves is the main source of strength in later intellectual life. Ex- cept as the information in the textbooks can be utilized as material for independent thinking, it is of slight value indeed. It is through contact v/ith nature in nature study and elementary science ; through self-expression in drawing real things, singing and composing real songs, making with the hands useful objects which the child has originated in his own mind ; and through making applications to the so- cial situation around him, of the materials of history, geog- raphy, mathematics, and the other studies; it is through these things that the powers within a child grow. Experi- ence In doing, and in independent thinking, furnishes the only adequate basis for expression. The solving of prob- lems in nature study, geography, and history, as wtU as in arithmetic, is the only satisfactory training for the develop- ment of ability in reasoning. In this connection it may be well to emphasize what has been said elsewhere in this report, concerning the influence of the examination system now in vogue in Butte. What- ever administrative device tends to encourage the getting of facts for the sake of facts, is almost certain to lead to undue emphasis upon formal instruction. Examinations should not be used in the elementary schools as a measure for determining promotion of pupils. As an illustration of the legitimate use of tests it may be interesting to cite the case of the Boston schools, where the progress in the funda- mentals in arithmetic was measured by giving the Courtis Tests in January, and then again in April. By reference to Figures 18 and 19 it will be noted that Boston was weak- est in division. That chart records the result of the Janu- ary tests. Knowing this weakness, the teachers sought to remedy it. As a result, while the average gain between 184 Problcfus in City School Administration January and April was 2.1 examples in addition, 1.8 in subtraction, and 2.0 in multiplication, it was 2.7 examples in division. If, then, instead of using examinations to determine promotions, teachers and principals used forms of tests, such as the ones employed by the Survey commission, to determine how much progress is being made from year to year, and how much the weaker pupils are gaining, and the like, then the tests would be regarded as means of really helping the teachers to solve their problems. Then, too, both the teachers and the pupils would be glad to have the measure applied. CHAPTER X THE SUPERVISION OF INSTRUCTION 'T^HE efficiency of a teaching corps depends not only upon ■■• the professional preparation which the teachers may have had for their work, but also upon the adequacy of the supervisory corps with whom they work. The Survey com- mission studied carefully the present situation with respect to supervision by holding conferences with the Superin- tendent of Schools, the primary supervisor, the supervisors of special subjects, and with the principals of schools. Some member of the commission spent from one to four hours with each of the supervisors mentioned above. In some cases, as many as three members of the commission held conferences with the same supervisory officer. In addition to these conferences much light was thrown upon the prob- lem by a careful survey of the courses of study In use, and by means of conferences with teachers with respect to their needs and concerning their contact with the supervisory officers. It Is the chief business of the supervisory corps In any school system to continue the training which teachers may have had in preparation for their work. A teaching corps which is standing still can never be considered satisfactory, from a professional standpoint. Just as the doctor or lawyer must constantly keep In touch with the best work done In his profession, so the teacher, to be efficient, must be kept in touch with educational progress, and must ex- pect to grow in teaching power from year to year. Indeed, it Is safe to estimate that, under adequate supervision, the efficiency of teachers may be more than doubled after a short period of years. This is especially true, of course, of those who are young In the profession. 185 i86 Problems in City School Administration For convenience of discussion, the work of the super- visor may be considered under the following heads: 1. The demonstration of methods of teaching. 2. The criticism of instruction given by teachers. 3. The securing of the participation of teachers in the development of supervisory and administrative policies. 4. The measuring of the achievements of pupils. DEMONSTRATIONS OF METHODS OF TEACHING For a large majority of those who engage in teaching, the most effective means to be employed in developing right methods of teaching is to be found in the demonstration of successful methods, together with a discussion of their validity. An efficient principal of a school will often seek to strengthen the work of a teacher by teaching a class, and then, at some later time, holding a conference with the teacher she desires to help. In this way it will be possible not simply to say to the teacher, ''Do as I do," but also to point out the validity of the particular method demon- strated and to discover wherein may lie the difficulty of understanding for the teacher whom the principal desires to help. In many school systems, teachers who do excellent work are asked to teach before a number of their colleagues. After such lessons for observation are held, the teacher who does the work, and those who have observed, meet for discussion, in order that all may gain an insight and appre- ciation of the strength or weakness of the lesson taught under the guidance of the supervisory officer. It has been found advantageous in many school systems to have teach- ers visit in each other's rooms. This may prove profitable when the supervisory officer knows where to send the teacher who is to get help, and when the teacher knows that she is expected to report back, to the supervisory offi- cer, her thought with respect to the teaching observed. The Supervision of Instruction 187 CRITICISM OF INSTRUCTION Supervisors may help teachers through careful and sys- tematic criticism of their classroom teaching. A principal can often secure the confidence of the teachers with whom she works by showing appreciation of the strength which she has discovered. It is of course not enough to say that work is good, in order to capitalize the success of the teacher. The principal, or other supervisory officer, must indicate clearly the validity of the particular exercise com- mended in terms of principles of teaching, which are made clear to the teacher. With this foundation laid in appre- ciative criticism it will be possible for the supervisor to point out weaknesses in the work which has been observed, and to suggest again, in terms of fundamental principles, recom- mended changes in method. Many exceptionally capable teachers need the help which can be given by the super- visor who suggests, by virtue of larger experience and broader professional outlook, possibilities of achievement which had never occurred to the teacher. This suggestive criticism may often be the means of keeping alive pro- fessionally a teacher who might otherwise cease to be in- terested or enthusiastic in her work. COOPERATION OF TEACHERS IN DEVELOPING SCHOOL POLICIES Successful supervisory officers are learning that it is advantageous, in so far as it is possible, to secure the par- ticipation of teachers in the development of supervisory and administrative policies. For example, in the making of the courses of study, the contribution of the teacher of the grade is just as important as that of the supervisory officer, or of the subject-matter expert. Indeed, there can be no satisfactory teaching of a course of study without that understanding and appreciation on the part of teachers which is best secured by having them contribute largely to 1 88 Problems in City School Administration the preparation of these syllabi. A wise administrator con- stantly seeks to acquaint teachers with the meaning of records which are kept and reports which are required. Some of the best forms for recording school information, and many of the most acceptable ideas with respect to those supervisory measures, have come from interested groups of teachers. Teachers' meetings cease to be a bore when it is understood that it is in this democratic assembly that the policies which are to govern the school system are to be developed. In many systems of schools a series of meetings by grades, or groups which have special interests, have been continued over a year or more in order to develop a course of study, or to discuss administrative policies, or for professional study which looks toward the improvement of the work in the schools. MEASUREMENT OF THE ACHIEVEMENTS OF PUPILS A supervisory officer who is interested in his schools naturally attempts, from time to time, to measure the achievements of the pupils in the schools under his charge. Until very recently nearly all school systems used the term- examination as a means for making these tests. The courses of study were outlined on the basis of definite ac- complishments, in definite textbooks, and then examination questions, uniform for all schools, were issued from the superintendent's office, the test being how many pupils could pass the written tests issued. This has been the method used in Butte, the questions issued being either the Montana state questions, or ques- tions approved by the City Superintendent of Schools. These examinations have been attempted by all pupils, from the third to the eighth grades inclusive. One week, four times each year, or a total of one school month, has been given to these tests, and another week, also four times each year, or another school month, to preparation for the tests. Nominally one third, but actually nearly one half, as is ex- The Supervision of Instruction 189 plained in the footnote on page 121, of a child's chances for promotion from grade to grade has depended upon the ability to pass these quarterly written tests. The inevitable result of this method of school supervision has been that the teachers have come to teach textbooks, rather than chil- dren, and one of the measures of efficiency in the teaching corps has come to be the ability to prepare children for these examinations. As a method for supervising the schools the periodical written examination is about as poor and as wasteful a method as could be devised, and the bad results of the sys- tem in Butte have been well set forth in the statistical data given in Chapter VI, showing the large number failing to pass the promotional tests and the large number of over- age children in the schools. Many of the faults in the instruction seen, as pointed out in Chapter VII, on the Quality of Instruction, are also undoubtedly due, in large part, to the system of tests which have been in use, and which have determined the aims of the instruction given. This system of supervision is so wasteful of both the teachers' and pupils' time; the questions asked are fre- quently so irrelevant, and so technical; the effect of the tests in shaping the instruction are so bad ; the general fail- ure of the plan, as shown by the tests given (see Chapter IX), to insure efficient instruction, is so evident; and the results on the promotion of children are so disastrous ; that the Survey commission recommend the abandonment of these uniform written tests, and the substitution, not only of a more personal form of school supervision, but also of a more reliable basis for the promotion of pupils. If a course of study based on topics, rather than pages in text- books, were outlined for the schools; if the supervision pro- vided were to direct attention more to the improvement in the methods of instruction on the part of teachers, and the methods of supervision on the part of principals; and if promotion from grade to grade were based on the com- bined judgment of the teacher and principal concerned,— IQO Problems in City School Administration the educational results obtained in the Butte schools cer- tainly would be materially improved. STANDARD TESTS OF INSTRUCTION The recommendation that the type of examination test heretofore used be abandoned does not mean that the Sur- vey commission feel that tests for purposes of supervision should not, from time to time, be made. On the contrary, the Survey commission distinctly recommend the opposite. The tests that they recommend, however, in subjects in which they may be used, are the so-called ''standard tests," such as were used by the commission itself in testing the work of the schools, and as are explained in some detail in Chapter IX. By the use of these standard efficiency tests, — tests designed to test individual growth, increase in accom- plishment, reasoning ability, and increased personal power on the part of pupils, rather than the memorization of knowledge which may or may not be of any real value, — an efficient addition to the work of supervision in Butte may be introduced. Careful students of education are beginning to appre- ciate the inadequacy of the method of examination of pupils which has been common in the past. With the development of scales and imits of measurement which enable us more accurately to evaluate the achievements of pupils, the work of the supervisory officer has increased in significance. When such careful measurement of the results of instruc- tion are made, and when teachers have been trained to ap- preciate the validity of such measures, it is relatively simple for the supervisory officer to point out with precision the strength or weakness of a particular teacher. Where the right attitude exists between teachers and supervisors, this careful analysis of the results of the teacher's work quite commonly results in a change of emphasis, or a redistri- bution of time or effort on the part of the teacher. The Supervision of Instruction 191 TEACHER AND SUPERVISOR In the survey of the problem of supervision in the Butte school system, the commission was impressed with the spirit of cooperation which was evident as between prin- cipals and teachers. They found many teachers who were eager to improve their work, and principals who were most anxious to help them. In every case, they felt that the principals were endeavoring faithfully to perform their duties, as they understood them. The recommendations of the commission have to do mainly with the necessity for broader training for members of the supervisory corps, in order that they may better tmderstand the work which their position involves. The Survey commission, impressed as they have been by the need of better professional train- ing for the school principals, specifically recommend that their tenure in the school system be made to depend upon the securing of more adequate training than they now pos- sess. In order not to work any undue hardship upon them, it is recommended that they be given an extra month's salary, and that they be required, during the next three years, either to attend two summer schools, which may be organized by the Board of School Trustees in Butte, or that they attend two university summer sessions, and take, courses, devoted to the problems of supervision, which meet with the approval of the Superintendent of Schools. We feel that we cannot commend too strongly, nor too often, the action of the Board of School Trustees in bring- ing to the city system a primary supervisor of broad ex- perience and superior professional training. The commis- sion believe that strong and continuous support of this officer in her work for the improvement of the teaching corps will bring large returns in increased efficiency for the school system. There is need too, we believe, for thoroughgoing sup- port of the Superintendent of Schools by the Board of Trustees in any constructive policy he may desire to carry 192 Problems in City School Administration out. He should be considered the executive officer of the board, and should carry out the policies which the board has approved. His special professional training and equip* ment should be acknowledged, and he should have the power to select teachers, secure textbooks and supplies, place teachers in the system, bring about the organization of courses of study, determine the organization of classes and schools, and direct the collection of data which may prove significant for the management and control of the school system, subject only to the approval or veto of the Board of School Trustees. He must, if his administration is to prove efficient, be held responsible also for the success or failure of his administration, and it is essential that he should be given power commensurate with this responsibil- ity, and then be expected to use it, and use it intelligently. Throughout the system, the success of supervision will depend upon the loyalty of teachers to their principals, and of principals to the general supervisory and administrative officers of the system. There can never be established any adequate system of supervision or administration unless members of the Board of School Trustees constantly refer any matter of unrest or dispute to the supervisory officer most concerned, rather than take action, either to support or condemn the one who is unhappy in her work. It is recommended that the rules of the board be so amended (if amendment is necessary) as to preclude an appeal to the board or to any individual member of that body, until any matter of dissatisfaction or dispute has been consid- ered and acted upon by the proper supervisory or adminis- trative officer. CHAPTER XI ADAPTATION OF THE SCHOOLS TO COMMUNITY NEEDS (i) The New Types of Instruction TT is the function of public education to provide oppor- -*■ tunities for training to all members of the community who are willing or who can be persuaded to secure more education. The older idea that the public school system was concerned only with the training of boys and girls from the ages of 6 to 14 and 16 has, in the more progressive communities, been replaced by a conception of education which is large enough to include children of less than 6 years of age, and all of the members of the community beyond compulsory school age who can be interested in further education. We are beginning to vmderstand that those ideals and purposes which are to be significant in the lives of men and women, are more apt to be developed after the period devoted to elementary-school training than during the eight years devoted to this work. We know that in every city there are men and women who are eager to learn and whose further education will constitute one of the greatest assets of the community. The organization of our schools which has placed the age of entrance at 6 is accidental, rather than carefully planned in terms of the development of children and the social consideration of the environment in which they live. kindergartens Reference has already been made in Chapter VIII, on the Courses of Study, to the necessity for establishing 193 194 Problems in City School Administration kindergartens in all of the elementary schools. Without seeming unduly critical of the environment in which most of the children of Butte live, it may be remarked that there are few cities in the United States in which the environment of children is as unfavorable as that found here. If chil- dren could have as much as three hours a day, from 4 to 6 years of age, with skilled kindergarten teachers, it seems to members of the commission that much of that joy which is the prerogative of childhood would be introduced into the lives of many of the little children of Butte, who are, even when home conditions are most favorable, happiest in their play and work with other children, under sympa- thetic direction. Students of education recognize that the kindergarten does much for the social training of children, that the play activities which are to be found there have a very definite educative value, and that the free intercourse among chil- dren and teachers does much to lay the foundation for later intellectual development. It is in the kindergarten that many children get their first appreciation of order and sys- tem. They acquire habits of industry and courtesy, traits which are certainly valuable outside of school and for preparation for their later school work. The folklore, music, and art which are found in every good kindergarten lay the foundation for growth in power of appreciation of those things which are most worth while in literature, music, and the fine arts. Kindergarten teachers are always anxious concerning the physical welfare of children, and it is during the kindergarten period, not infrequently, that corrective treatment can be suggested, to the very great ad- vantage of the children concerned, in terms of their later development. In an investigation made in an Eastern city during the past year it was discovered that, of two groups of children from the same economic and social groups, those who had attended kindergartens made better progress and did more satisfactory work in the eight years of their elementary-school courses than those who had not. Adaptation of Schools to Community Needs 195 SrECIAL CLASSES FOR SPECIAL GROUPS Very good provision has been made in the local school system for special work and custodial care for boys who arc delinquent. The commission feel that similar provisions should also be made for girls. In their visits to the schools the members of the Survey commission were impressed by the number of backward or mentally deficient children who were present in the regular elementary-school classes. These children interfere greatly with the work of the teacher of normal children and profit very little from the attempt which they make to do the reg- ular school work. The commission recommends that spe- cial classes, of not more than fifteen pupils each, and taught by teachers who have secured special training, be organized in all of the larger buildings, for the sake of giving a type of instruction suited to the needs of backward or mentally deficient children. In the first grades of many of the schools a large num- ber of children are to be found who do not speak English when they enter school. If kindergartens are established, this difficulty may be largely overcome. Until that time, it is recommended that special classes be organized for non- English-speaking children, in order that their progress may be made more rapid, and for the sake of giving those who already speak English the larger opportunity which would come from working in groups, equal in ability with them- selves with respect to the command of the English language. The commission have not been able to make a careful in- vestigation concerning the number of deaf, blind, crippled, tubercular, or otherwise physically unfortunate children in the city. Most cities of the size of Butte have found it necessary to organize special instruction for children thus handicapped. It is customary when the numbers are small and the distance to be traveled great, to provide transporta- tion for these unfortunate children. This problem should be carefully investigated, and children in these groups, 196 Problems in City School Administration whether they are now in school or not, should be given such education as they are capable of enjoying. Care should be taken to provide, whenever possible, such a train- ing as will enable them to become self-supporting. In every school system there are also to be found those children who are especially capable. Provision is being made, in more progressive school systems, to conserve the ability represented by these children of unusual capability by providing opportunities, either for rapid advancement through the several grades of the school system, or for more intensive and thoroughgoing study of the subjects commonly taught. The commission are of the opinion that this matter should be carefully considered by principals and teachers in the Butte school system, and they are per- suaded that in many cases children should be allowed to skip a half-year or more, from time to time. In order to put them in classes where they can work up to the maximum of their capacity. The recommendation contained in an- other part of this report for intermediate schools (see Chapter VIII) would, if carried out, do much to provide opportunity for these super-normal children In the upper grades of the schools. NIGHT SCHOOLS The investment of any city in public school buildings and equipment can bring the maximum of return only when the buildings are used up to the maximum of their capacity, not only during the period from nine o'clock in the morning until four in the afternoon, but also during the later after- noon and evening hours, and possibly during the period be- fore nine o'clock in the morning. In a city like Butte, in which the working day covers the whole of the twenty-four hours. It seems especially worth while to consider the pos- sibility of utilizing the school equipment during more than six or seven hours a day. There must be In this city many boys and girls who leave school before completing either Adaptation of Schools to Coimniinity Needs 197 an elementary or a high school course, who would, if op- portunity were offered, continue some phases of their work in classes which might be organized, as has already been suggested, either before regular school hours in the morn- ing, during late afternoon hours, or during the period com- monly occupied by night schools. These young people should be encouraged to continue some sort of intellectual work, or if this type of activity makes little appeal, there should be given, in the school buildings, the opportunity for social intercourse, and they should have provided for them entertainment which will safeguard them and the community from the evil influences of the street and of those commercial amusement enterprises which are all too common in our cities. Wherever the school plant has been opened to this group of people a large demand has been found for work in manual training, the commercial sub- jects, instruction in science, cooking and sewing, besides a considerable group who are anxious to take up those studies regularly offered in the high school. CLASSES FOR THOSE WHO DO NOT SPEAK ENGLISH Provision should be made for the teaching of English to youth or adults in the community, who are unable to speak or to read the English language. In the organiza- tion of such classes, it is not necessary to have special classes or teachers for each foreign tongue represented. A well- qualified teacher may have in her class as many as fifteen different nationalities, and yet prove most efficient in teach- ing English to all of them. The community's obligation to educate those who cannot speak English is as real, from the standpoint of the safeguarding of our democratic institu- tions, as it is to educate all children between six and six- teen. Classes for the teaching of English to those speak- ing other languages should be opened in at least three or four school buildings, and should continue from seventy- five to one hundred sessions each year. 198 Problems in City School Administration THE WIDER USE OF THE SCHOOL PLANT School buildings should be opened as meeting places for groups of girls or women who may be interested in hy- giene and home nursing, in music, or in physical training. For the older boys and girls who have left school, or for the men and women of the community, public lectures, musical entertainments and social gatherings, debating or literary clubs, and the like, under proper restrictions, should be provided by the Board of Trustees, and should be en- couraged in the school buildings. The community as a whole is interested in the educa- tion of little children, of youth, and of adults, and a wise organization of educational activities in any city must take account of the special needs and interests of the several groups to be found, without any age specification. The wider use of the school plant by those who are unable to, or are unwilling to, attend the regular sessions of the ele- mentary or high school will result in a larger return for the community from the investment already made in build- ings and equipment. The purpose of public education can- not be realized until the school system throws open its doors and provides instruction, suited to their needs, for all the people of the community. (2) Care for the Physical Welfare of the Children facilities for play In their examination of the schools of Butte the mem- bers of the Survey commission have been deeply impressed by the need of very much greater attention to the physical welfare of the children in the schools. The play activi- ties of the children seemed to be given but little chance for expression, in most of the schools, and the general absence of adequate playgrounds or playground facilities was noticeable. As is pointed out elsewhere in this report (Chapter III), larger playgrounds, a better location of the Adaptation of Schools to Community Needs 199 school buildings, and a supply of playground apparatus for each of the schools should be provided. The educational value of play is too often underestimated by both teachers and adults. In a community such as Butte much ought to be made of play, both for educational and physical reasons. PHYSICAL CONDITION" OF THE CHILDREN The members of the Survey commission were also im- pressed, as they visited the schools, by the urgent need for some form of physical examination and direction for the schools of the city. The number of children who were sitting in seats too small or too large for them ; the number who showed unmistakably that they were poorly nourished, and in poor physical condition; the number of mouth breathers; the number with defective teeth; the large num- ber with defective eyesight, and the few provided with glasses, — these and other evidences of the need of some competent physical direction, coupled with a follow-up system capable of advising and securing results, were im- pressive facts to the members of the Survey commission. So impressive were they that the members of the Survey commission feel that they would not be doing their duty if they did not strongly urge upon the Board of School Trus- tees the necessity for the appointment of a competent per- son to direct health and physical welfare work in the schools, and to oversee the health Instruction in the schools; and also the appointment of at least two school nurses, to co- operate with the director of the health and physical work in the schools, and to follow up the work by securing the cooperation of the parents in the homes. PROBABLE PHYSICAL CONDITIONS From careful studies made in hundreds of cities in the United States, and from the published results of the studies of millions of school children in the United States, Europe, 200 Problems in City School Administration Canada, and Australia, very good estimates of the number of defective children in any community can now be made. Based on these studies we can safely say that, of the ap- proximately 7,500 children enrolled in the Butte schools, not far from 12 per cent. (900) are poorly nourished or anaemic; 60 per cent. (4,500) have seriously defective teeth; 20 per cent. (1,500) have or have had obstructed nasal breathing, or enlarged tonsils; 10 per cent. (750) have enlarged cervical glands, many of which are tuberculous; 20 per cent. (1,500) have been infected at least once with tuberculosis, many of whom probably will die of the disease; 12 per cent. (900) have defective vision serious enough to require correction by glasses, with which very few seem to be provided ; 5 per cent. (375) have seriously defective hearing; 2 per cent. (150) have organic heart disease ; 6 per cent. (450) are "nervous," or predisposed to some form of nervous disorder; I per cent. (75) are so mentally backward that their intelligence will never go beyond that which is nor- mal for the twelve-year-old child; 15 to 20 per cent. (1,125 to 1,500) sleep in a bedroom with no window open; 50 per cent. (3,750) are not supplied with the kind of food which young children should have, if proper growth and mental development are to be expected. The above are more probably under rather than over estimates, as the percentages given will be exceeded in good American residence cities. The figures given are suf- ficient to indicate at least some of the physical needs of Butte. The work of the schools can never reach a high plane of community usefulness until some intelligent at- tention is given to these defective children. It is a waste Adaptation of Schools to Community Needs 201 of time and money to pay a teacher $95 a month to try to impart instruction to a child who is physically incapable of absorbing 25 per cent, of the instruction provided. The child fails to make progress, retards the progress of other children by absorbing an undue proportion of the teacher's time, fails of promotion, and is headed toward a failure in life's work. Statistical studies have shown that an unduly large proportion of criminals and prostitutes are recruited from this class of defective children. The very large amount of over-age and retarded pupils found in the Butte schools (see Chapter VI) is no doubt traceable to the ab- solute lack of any system of health supervision in the schools. TYPES OF HEALTH SUPERVISION There are two main types of health supervision now found in the school systems of the United States. The first is the so-called "medical inspection," which is often carried on by local physicians who devote a few hours a week to the detection and control of contagious diseases. This represents the usual beginnings of health service in the schools. In nearly all cases it is merely an extension of the functions of the local board of health. The cost averages, over the United States, about thirteen cents per year per pupil. The second type of school health service has now passed far beyond the "medical inspection" in which the work be- gan, and aims not only to control contagious diseases, but also to discover every form of physical defectiveness which may exist among the pupils, and, by means of an efficient follow-up service, to secure the cooperation of the home in preventing and curing defects. This type of school health service also includes in its scope the physical train- ing and playground work, the supervision of the hygiene instruction in the schools, home education in matters of hygiene, sanitary inspection and supervision of the school- houses, and other similar lines of health and sanitary serv- 202 Problems in City School Administration ice. The cost is often as high as fifty cents per pupil per year, but it is worth many times the other type of health service. It is, however, a much more difificult type to find a physician capable of handling. THE SCHOOL NURSE At least two school nurses should be supplied for fol- low-up work. Without an adequate follow-up system only a small fraction of the notices of defects sent home to the parents will ever be acted upon. Judging by the experience of other cities, probably not more than from lo to 12 per cent, would be acted on in Butte. With a school nurse follow-up system experience elsewhere shows that from 85 to 90 per cent, of the cases reported secure attention. The nurse goes into the homes of the children, notes the conditions which surround them there, and by a tactful presentation of needs, which women can do so much better than men, accomplishes results with mothers which can- not otherwise be had. School nurses also very often es- tablish somewhat permanent advisory relations with the homes they have once visited. School nurses can also make many of the routine school inspections as well as can the school physician, and they are frequently of more service to the teachers. Eye dis- eases, skin diseases, the beginning of illness, the detection of head lice, and the early recognition of physical defects can be as well handled by the school nurse as by the school physician. Another advantage of school nurses is that they do not arouse so much professional jealousy as do regular physicians. THE TEACHER AND HEALTH SUPERVISION Any plan for health supervision which does not secure the cooperation of the teachers in the school system prob- ably will prove a failure. The more prominent the child- Adaptation of Schools to Community Needs 203 welfare and preventive aspects of the work, the more the teachers must be enHsted in the work if it is to succeed. Teachers, who have the children under their charge, are usually very willing to cooperate, if they only understand what it is they are expected to do. An important part of the work of a health supervisor is the education of the teachers so that they may render the proper cooperative assistance to both the school physician and the school nurse. Though usually quite blind to physical defects at first, teach- ers soon, with a little training, become quite adept in de- tecting many of the common defects of childhood. INSTRUCTION IN HYGIENE AND PLAY SUPERVISION Another place where the right kind of school physician can render valuable service is in supervising the health instruction and physical training work of the schools. To the members of the Survey commission both these lines of work seemed to be in need of more careful and more In- telligent direction. Of directed play, in a large number of the schools, there seemed to be little or none. The work In health instruction, it was felt, could also be materially improved. CHAPTER XII SUMMARY, CONCLUSIONS, AND RECOMMENDATIONS TT is not possible to summarize adequately the results of -*' the Survey in a few pages. The conclusions which have been reached and the recommendations which are made de- pend, in every instance, upon observations which are re- corded or upon data which were collected, and which ap- pear in the tables to be found in the report. In order for anyone to understand the conclusions which are reached and the recommendations which are made, it will be neces- sary to read the entire report. To this end, the Survey commission recommend that at least five thousand copies of this report be printed, as soon as is possible, in order that all Interested citizens may have a chance to study care- fully the findings of the Survey commission. It may not be out of place to suggest that all who read the conclusions which follow withhold judgment as to the validity of the findings of the commission, and of the recommendations which are made, until it is possible to examine carefully the data which furnish the basis for these conclusions and recommendations. THE ADMINISTRATION OF SCHOOLS A careful study of the law under which the school dis- trict has been organized makes it clear that the Board of School Trustees is vested with large authority in the con- trol of public education. The commission recommend that there be a clear differentiation between the legislative func- tions exercised by the Board of School Trustees, and the executive powers vested by them in the Superintendent of Schools and the School Clerk. There can never be any 204 Summary, Conclusions, and Recommendations 205 adequate administration of schools without the placing of large responsibility upon executive officers, chosen by the Board of School Trustees, and this responsibility can never be adequately met except vi^hen the board vests in the Superintendent of Schools authority commensurate v^ith his responsibility. SELECTION, TRAINING, TENURE, AND SALARIES OF TEACHERS Most of the teachers who are now at work In the ele- mentary schools of Butte have had inadequate professional training. Only 22 elementary-school teachers out of 181 reported have had a minimum of two years of normal- school or other professional training beyond their high- school course. Only 6 of the 16 principals of the ele- mentary schools have had this minimum of professional training. The commission most strongly recommend that hereafter no teacher be employed in the school system who has not had a four years' high-school course and two years of professional training. The commission recommend that, in order that these teachers may realize their greatest efficiency, a summer school be opened in Butte for the pro- fessional training of teachers; that all teachers be required to attend this school, or some other recognized normal or university summer school; and that they be paid an addi- tional month's salary for such attendance. A similar recom- mendation Is made with respect to elementary-school prin- cipals. After a careful study of the salaries paid in other Western cities, the commission have recommended that the maximum salary to be paid to elementary-school teachers and to principals be Increased, but that this maximum salary be made dependent, In every case, upon the securing of additional professional training. SCHOOL BUILDINGS AND EQUIPMENT The reports which have recently been made by the school architect, in cooperation with the county health offi- 2o6 Problems in City School Administration cer, and by the city health officer, were carefully examined by the Survey commission. They were found to be in sub- stantial agreement. The members of the commission then made a careful study of the buildings on their own account. Their findings and recommendations may be briefly sum- marized as follows: 1. In the past the school sites which have been bought have been too small, and the buildings not infrequently undesirably located. 2. The type of building constructed is not satisfac- tory. In almost every case the lighting is from at least two sides, with wide pillars between the windows. In modern schoolhouse construction lighting is always ar- ranged from one side only, with very narrow pillars be- tween the windows. 3. There has been a tendency to construct too many small buildings, which are uneconomical and unsatisfactory from the standpoint of providing proper educational facili- ties. It is doubtful whether it is ever economical to con- struct a building with fewer than from 16 to 18 rooms. This is especially necessary if proper provision Is to be made for the manual and household arts, and for special classes for children who need special attention. These larger buildings should contain an auditorium, in order that they may be used outside of regular school hours as a com- munity center. 4. The buildings now in use can be best adapted to the needs of the community by segregating, in the present high-school plant, the children of the seventh and eighth grades and the first year of the high school, as an inter- mediate school, in order to make room for kindergartens, special classes, and for work in industrial and household arts, as suggested above. It seems to the members of the commission that some of the buildings, notably the Greeley School, are so Inadequate and unhygienic that they should be demolished rather than be repaired and added to. It is the judgment of the commission that It would be unfor- Summary, Conclusions, and Recommendations 207 tunate to add to the present high-school building. A new high-school site should be found, and a new building, con- taining a gymnasium and auditorium, as well as the ordi- nary laboratories and classrooms, should be constructed. 5. The janitorial service is faithful, but not always intelligent. It is recommended that the clerk of the Board of School Trustees, in cooperation with the Superintendent of Schools, be given larger authority with respect to the work of the janitors, and that they be given, under his direction, such training as will insure more satisfactory service. CENSUS, RECORDS, AND REPORTS The present school census has been taken as provided by the state law. The commission recommend a more satisfactory system of recording the census data, and means of keeping the census file up to date, and the collecting of such additional information as will make the census more significant, from the standpoint of its possible educational use. The forms for amending the census are given in the body of the report. Recommendations are also made with respect to the methods of reporting by principals to at- tendance officers and to the Superintendent, and concerning the report of the attendance officers to the Superintendent. Some suggestions are given concerning the possibility of simplifying the present system of school records. COSTS AND FINANCIAL RECORDS The commission found it difficult, from the data which are available, either in the school offices or in the report of the United States Census, to make any adequate calcula- tion as to the cost of education in Butte, compared with other cities. Such approximate comparisons as it seemed advisable to make are found in a table of comparative cost, which is given in the body of the report. In consultation with the School Clerk, and with his hearty cooperation and 2o8 Problems in City School Administration approval, a better system of school accounting has been recommended, and a form for such is included in the re- port. With this more adequate system of accounts it will be possible for the Board of School Trustees to know con- cerning the cost of any particular school, or type of edu- cational activity. With this information at hand it will be possible for the board to adopt such policies as promise a maximum of economy and efficiency. THE CLASSIFICATION AND PROGRESS OF PUPILS The facts with respect to the classification and progress of children in the school system were collected from all schools of the district. These data show clearly that there are a very large number of children in the Butte schools who are too old for the grade in which they are found. A careful examination of the tables which appear in this report w^ll show that one out of every two children in the school system is over-age for his grade. Many of these over-age children are one to two years over-age, but al- most two hundred are three or more years over-age for their grade. In the body of the report will be found a discus- sion of the causes of this retardation. It is more important, in this connection, to note that the commission recommend that special classes be established for those who are back- ward or mentally deficient. These special classes will prove helpful not only in making it possible to give proper train- ing to those who are backward or deficient, but also in re- moving from regular classes children who interfere with the proper teaching of those who are normal. The com- mission also recommend the establishment of a summer elementary school, in order that many children who would otherwise fail of promotion may make normal progress in the school system. A careful study of promotion and non-promotion in the school system, the data being recorded in tables in the body of the report, shows an extraordinarily large number of Summary, Conclusions, and Recommendations 209 non-promotions. These non-promotions seem to the members of the Survey commission to be due to the fact that promotion is based almost wholly upon the ability of children to recall great numbers of facts, rather than upon their capacity to undertake the work of the next grade. A reorganization of the courses of study and a change in the type of examination given is most urgently recom- mended, in order that the amount of non-promotions may be decreased. From the data collected concerning the size of elemen- tary-school classes, the commission have discovered that con- ditions are most favorable in Butte. Indeed, they seem almost ideal as compared with other cities in the United States. The relatively small class which is common in the school system suggests the possibility of adequate instruc- tion for all children, and of regular advancement for all who are systematic in attendance, provided the recommen- dations made above concerning special classes and for changes in the courses of study and examination systems are carried out. It was also discovered that the size of recitation sections in the high school was small, and that it would be possible to increase, by as much as 50 per cent., the attendance upon the high school, in many of the subjects taught, without increasing the present teaching corps, provided an adequate plant were available. THE QUALITY OF INSTRUCTION In the body of the report will be found a discussion of the criteria which seem to the members of the commission fundamental in any discussion of class teaching. In the light of these criteria, the commission have found that the teaching in the Butte schools is, in general, good with re- spect to drill work. They are of the opinion, both from the standpoint of their observations and from the tests given to children, that the work involving thinking has been neg- lected. This seems to be due, in considerable measure, 210 Problems in City School Administration to the fact that the type of examination required has led to a cramming of facts rather than to an insistence on the solving of problems by pupils. There is need for better understanding upon the part of the teachers of the impor- tance of lessons whose end-point is to be found in appre- ciation of literature, art, and music. The technique involved in this kind of teaching seems not to be well understood by the teachers of the school system. The commission were most favorably impressed by the relationship of good will and accord which seems to exist between teachers and pupils throughout the school system. In the opinion of the commission, the teachers employed in the Butte schools are, with few exceptions, women of good ability, who are anxious to do their best work for the children. They believe, however, that these teachers are not now realizing anything like their full possibilities, and that much greater efficiency in teaching may be expected to result from careful supervision and from more adequate professional training. COURSES OF STUDY As has already been suggested, the courses of study need to be carefully revised. There is at present entirely too much emphasis upon formal drill work and the remem- bering of facts which are recorded in books. It is the primary purpose of education to develop power of inde- pendent thought upon the part of children, rather than to cram them with facts. Whenever a course of study or an examination system emphasizes the importance of remem- bering, rather than the possible growth in power of think- ing and of appreciation, teachers invariably limit their work to the preparation of children for these factual tests. It is the opinion of the commission that the courses of study need to be improved by introducing kindergartens, by pro- viding more adequate work in nature study and elementary science, by increasing the time devoted to the manual and Summary, Conclusions, and Recommendations 211 household arts, and by laying greater stress upon literature, music, and drawing. It is also suggested in the body of the report that there would be great advantage in organizing an intermediate school for children who have completed the sixth grade. This school would permit of some degree of specialization during the three-years' course, and would in all probability not only afford better educational opportunities for those who remain in school, but would also increase the number of those who stay for nine years of school work. THE ACHIEVEMENTS OF PUPILS One of the most important parts of the work of the Survey was the measurement of the achievements of pupils in the school system. Standard tests in spelling, arith- metic, penmanship, and composition were given. It was possible by using these tests to compare the results achieved in Butte with those which are secured in other school sys- tems. In spelling, in the fundamental operations of arith- metic (addition, subtraction, multiplication, and division), and in penmanship, the results secured in Butte were as good or better than those found in other school systems. This is exactly what would have been expected by one who knew of the emphasis placed upon drill work in the school system. The results in the reasoning tests in arithmetic and in English composition Indicated a very decided weak- ness in these fields of work. The commission venture to suggest that it is only when emphasis Is placed upon think- ing and upon the development of the Individuality and self- expression of children, rather than upon formal drills and fact-getting, that satisfactory results can be expected in reasoning or In expression of thought. THE SUPERVISION OF INSTRUCTION The Board of School Trustees are to be strongly com- mended for their action in securing the services of a woman 212 Problems in City School Administration of broad training and experience for the position of pri- mary supervisor. In the judgment of the members of the commission much of the success of any school system de- pends upon the quahty of the supervision exercised by the Superintendent and the general and special supervisors^ Even the best of teachers, possessed of the most adequate professional training, need the help and inspiration which come from the especially capable people who should be placed in supervisory positions, for the sake of demonstrat- ing superior methods of work, of criticizing the classroom procedure, of measuring the success of a teacher's work by the accomplishment of the children taught, and of securing the cooperation of all teachers in the development of the policies which characterize either the whole school system or some particular building or other division of it. In the work of supervision the principal's office should be of very great importance. Those who now hold these offices in Butte are, in the opinion of the Survey commis- sion, eager to fulfill their obligation to teachers and to pupils. They need, however, better and broader conceptions of their work, and to this end it has been recommended that they be required to secure, in summer sessions, more adequate professional training. THE ADAPTATION OF SCHOOLS TO COMMUNITY NEEDS The schools of Butte have, in the past, concerned them- selves chiefly with the instruction of children of elementary- and high-school age, and during those hours which are commonly recognized as constituting the school day. The schools have offered, for the most part, a single program of work. The commission recommend: 1. The organization of kindergartens. 2. The establishment of special classes for those who are backward or deficient and for non-English-speaking children. Summary, Conclusions, and Recommendations 213 3. The wider use of the school plant, including ele- mentary- and high-school work in classes to be opened, either before regular school hours In the morning, during the late afternoon, or at night. 4. That much greater opportunity for play and recrea- tion be provided, both within the buildings, wherever that is possible, and by the purchase and equipment of play- grounds. 5. That the physical welfare of school children be pro- vided for through the establishment of adequate health supervision, involving medical inspection and visiting nurses. In conclusion, the Survey commission wish to em- phasize, for all who may read these conclusions, the neces- sity of studying carefully the whole report. In the several chapters presented will be found the records of observa- tions made and the tabulation of data which were collected. It is only when the reader has available these records of observation and these collected data that he can hope to judge fairly concerning the conclusions of the report, or to be reasonable and open-minded in his acceptance or re- jection of the recommendations which we have made. Appendices APPENDIX A THE INITIATION AND AUTHORIZATION OF THE SURVEY IN an extended communication to the Board of Trustees under date of April 27, 1914, Superintendent of Schools George F. Downer proposed that the Board of Trustees authorize an expert survey of the schools of District No. 1. This recommendation was con- sidered by the Committee on Teachers and School Management, which on the same date offered for the consideration of the board a body of resolutions on various subjects, closing with the following para- graph : (6) That in order to create the most favorable conditions pos- sible for increasing the efficiency of the public schools of this district, the board immediately investigate the plausibility of having made here such an expert examination of the schools of the district as has been suggested by the Superintendent in the attached letter. Such surveys have recently been made in Portland, Oregon, and Boise, Idaho, and if such a survey is made of the Butte schools, we hereby resolve to publish the results in full and to abide by the recommendations of the experts, wherever possible. The resolutions were signed by C. R. Hopkins, P. S. Harrington, and M. J. Rozsa, members of the Teachers and School Management Committee, and were passed, unanimously, by the board, all trustees being present. At its next meeting the following resolution was introduced by the Laws, Rules, and Regulations Committee : Resolved, That a survey be made of the schools of School District No. One, by Dr. George D. Strayer of Teachers College, Columbia University, New York City; Dr. Ellwood Cubberley, head of the Department of Education, Leland Stanford University, and Dr. Frank P. Bachman of New York City, and two assistants. Such survey to commence as soon as practicable, and there is hereby appropriated and set aside from the General Fund of the said School District the sum of Four Thousand Dollars ($4,000) to pay the expense of said survey and for the cost of a report from the said persons to the Board of Education as to the conditions of the said schools. C. R. Hopkins, Lowndes Maury. On roll call Trustees E. D. Elderkin, P. S. Harrington, C. R. Hopkins, E. F. Maginn, H. L. Maury, and M. J. Rozsa voted Aye. Trustee C. R. Wallace voted No. 217 APPENDIX B BLANK FORMS USED IN COLLECTING DATA Education and Experience of the Teachers in the Butte Public Schools 1. Name 2. Permanent home address 3. Position in School. 4. Please indicate in the appropriate spaces the amount of schooling you had before entering the service at Butte: Where? City and State Number of Full Years Parts of Years (Number of Months) Summer Sessions (Number of Weeks) Year of Graduation High School Normal School or Training School College or University 5. Please indicate in the appropriate spaces below the amount of schooling you have had since entering the service at Butte: Where? City and State Number of Full Years Parts of Years (Number of Months) Summer Sessions (Number of Weeks) Year of Graduation Normal School or Training School College or University 218 Appendix B 219 Experience : a. Date of entering service in Butte (Month) (Year) b. Number of years of service in schools of Butte: (1) As teacher years (2) As supervisor, or special teacher years (3) As principal vears (4) Total years c. Number of years of service in schools outside of Butte: (1) In Montana years (2) Elsewhere years (3) Total years d. Total number of years of experience in teaching, super- vision, etc years 220 Appendix B !^ cn W < < H H >* c^ ^ oa "-• O en ^" ^ 0^ w m t: g °7 fo ^§ o EG S 2 |« o S r^ o IS W O H £1 •> U y go. ^j U (^ Id 3 li Pk o Qi Z W to w -t-» o => a CTcS ^3 §3 r^ n +? o .2 •- 2 J3Q .52 si ^1 SuiMgg 1 1 guTurejj^ pnuB]/^ 1 oisnjAI 1 SUIMBJQ 1 2upuM 1 Amsiii -s -n 1 ASopisAqd i{qdBjSo90 guqpds 9gBnguBq oi;9uiq;iJY Suip-eg^ 5 Number in Class at End of Semester b Not Pro- moted a Pro- moted 4 Number in Class at End of Se- mester It ■c s •Si s^ 11 d Total Dropped and not Return- ing c Absence Exceed- ing 3 Whole Days b Leaving the City a Going to Private or a Paro- chial School J9^S9UJ9g JOJ - apBJO la Appendix B 221 Sheet II b Directions and Definitions for Report on Enrollment, Failures, etc. 1. Where a teacher has two grades, for example, a 1 B and a 1 A, she will put the record of each grade on a separate line. 2. Total enrollment for the semester (Item 2) includes (a) the original enrollment plus (b) all pupils received during the semester on transfer from other rooms of the same building and from other public schools of Butte minus (c) all pupils lost during the semester by transfer to other rooms of the same building and to other public schools of Butte. 3. Under Item 3 (Number Dropped) are to be included all pupils who have been dropped and who have not returned; that is, who have not been readmitted to school. 4. Under Item 6, where there were no failures in a particular study, indicate this fact by "o." 5. Checks which will show whether or not this blank is correctly filled out: (a) Item 2 (Total Enrollment) = Item 3 (Number Dropped) plus Item 4 (Number in Class at End of Semester), (b) Item 3 (Number Dropped) =Item 2 (Total Enrollment) minus Item 4 (Number in Class at End of Semester). (c) Item 4 (Number in Class at End of Semester) = Item 2 (Total Enrollment) minus Item 3 (Number Dropped). (d) The sum of a and b of Item 5 (Number in Class at End of Semester) = Item 4 (Number in Class at End of Semester). 6. After the blanks are filled out by the several teachers, the principal will assemble on a like blank, beginning with the highest grade — the 8 A — the report for the school as a whole, and will send her report along with those of her several teachers to the Superin- tendent's office, by Thursday afternoon, May 21. 222 Appendix B o u H en < § 1^ t« •§ m 1 o o SuiSuopg S9SSBIO JO jaquinM ^l'^ox SuiSuopg 92BJ9AV p;OX S9SSB13 p t/2 w O ^5 2ui2uo[9g gSBJSAy p;ox — — - S9SSB^3 JO jgquinM p^o^ oBg s5 SuiSuo^ag 92BJ9AV p;ox — S9SSBO JO J9qmn^ l^^o^ 1^ u 13 Appendix B 223 BUTTE PUBLIC SCHOOLS Directions and Instructions for Blank on Size of Classes 1. The data called for in this blank on Size of Classes will be taken from the Semester Summary. 2. Each principal will fill out the blank and return the same to the Superintendent's office, Monday afternoon, May 25. 3. The different grades are designated: First Year, Second Year, etc. First Year includes 1 B and 1 A ; Second Year, 2 B and 2 A pupils, etc. 4. Where a teacher instructs both a group of 1 B and 1 A pupils, these 1 A and 1 B pupils together are to be counted as one class and recorded as a class in the First Year, etc. 5. Where a teacher instructs, for example, a group of 3 B and a group of 4 B pupils, or any similar groups of pupils, the two groups are to be counted as one class and the class is to be recorded as belonging to the year of the highest group. In the illustration, the class would be recorded as belonging to the Fourth Year. 6. The "Total Number of Classes in Each Grade" equals the sum of the "Total Number of Classes" in each grade in question. 7. The "Total Average Belonging of All Classes in Each Grade" equals the sum of the "Total Average Belonging" of all the classes in the grade in question of the several sizes. 224 Appendix B H PQ O C/D o o o w o (—1 l-J PQ < o y. w ^ u C/2 ^ 8 o :s H w en U H ^ w H CD O o g o p; < OS Q w nJ p to H ^ W)+3 C o« i, t;;' I.lbr.ry Buildlrg T'7 1 't'T 1^^--^'* >-J;r.„d, ssrs ««?etmi,f^-7-irsi,°' i ™ta. ^& P-ijcigj f=:: '"E? '"' -,£, i= -S 11 rBB Brought Fnnvard ' — rn , , , .. . , , . 1 I 1 ' 1 ■ 1 ' I 1 ■ 1 ■ ' ' 1 ■ ■ ■ ■ 1 ■ ! 1 iTr—z 1 1 f^ urn 1 1 )isrRi(:T No. Ihr Monlh ol AtTXIT.IARV AOl MISCL. EXPENSl Index INDEX Absence report, 56. Accounting system, inadequate, 60; improvement suggested, 64. Administrative organization of Butte school department, 15-20, 204-205. Administrative principles, funda- mental, 20. Adults, wider use of school build- ing by, 198. Advancement, rapid classes, 87, 196. Age ranges within which children should complete school grades, -77- Appreciation, lessons for, 106- 108; more needed, 116-117. Arithmetic, 123-125; tests in, 168- 171 ; results achieved in, 172- 182 ; results in Butte compared with results in other cities, 176. Assembly hall in school buildings, 38. Attendance, enforcement of school, 52-53, 74-75; records and re- ports of, 55-58; responsibility of school authorities for, 74-75. Attention, value of, 103. Authority involves responsibility, 18, 205. Ayres, Leonard P., spelling lists derived by, 151. Backward children, teachers for, 28, 195 ; special classes for, 85- 87, 195, 208; summer schools for, 87-88, 208; cost of instruct- ing, 88. Basements, 34. Blackboards in classrooms, Z^. Blind, special instruction for the, 195. Board of School Trustees, elec- tion of, 12; duties and powers of, 12-13, 15-20; proper func- tions of, 19; executive officers of, 15-16; relation to Superin- tendent, 15-20. Boston, improvement of arithme- tic in, cited, 183. Buildings, for high school, 44-45, 206-207; present type too small, 43-44; type of, best suited to school work, 38-43, 206; wider use of, 198. Bureau of Education, U. S., standards of accounting, 64. Butte, compared with other cities as to salary schedule, 26; com- pared with other cities as to costs, 61 ; city only a fraction of school district, 60, ^"j ', large foreign element in population, 67-69; population and its char- acteristics, 67-71 ; occupations, 70; environment of children in, 194. Capable, pupils who are especially, provision for, 87, 196. Capacities of pupils, tested in the intermediate period, 142, 146. Ceiling too high, ZZ- Census, see School Census. Children, physical welfare of. 198- 203; environment of, in Butte, 194. Choice, important that child exer- cise, 108. Classes, size of^ in elementary school, 94-95; size of, in high school, 95-97. Classification and Progress of pupils, 76-100. 229 230 Index Classroom instruction in elemen- tary schools, 112-118. Classrooms, size of, 37; height, Z7', desks, 2^; blackboards, z6', lighting, 2)6; ventilation, 34; visits made to, by Survey staff, Commerce, Chamber of, meeting attended, 5. Composition test, 155-156; results of, 157-159; samples from, 158- 162; conclusions from, 162-163. Compulsory Education Law, 50- 52, 57-59. Constitutional mandate establish- ing schools, II. Cooperation of teachers in devel- oping school policies, 187-188. Cost of system of education, 61; records unsatisfactory, 62. Courses of study, criticism of, in elementary schools, 122-135, 210; in secondary schools, 147-149; state course unsuited to city schools, 14; in intermediate schools, 141-147. Courtis, S. A., Standard Tests, cited, 168. Crippled children, special instruc- tion for, 195. Criteria for judging quality of in- struction, 102-112. Criticism of instruction, 187. Curriculum, see Courses of Study. Deaf, special instruction for the, 195. Defective children, special teachers for, 28; special classes for, 85- 87, 195. Delinquent children, 195. Demonstrations of teaching meth- ods, most effective method of supervisors, 186. ^ Department heads in high schooAs, salaries of, 29. Desks, schoolroom, 26, 123. Discipline in elementary schools, 111-112. Domestic art, instruction in, in ele.mentary schools, 139-140. Domestic training, in high schools, ^47.. Drawing, instruction in, 135. Drill lesson, criteria for judging, 102-104; too much emphasized, 114, 182-184; importance of mo- tive in, 103; value of attention in, 103; quality of, 114; repeti- tion in, 104. Drinking fountains in school buildings, 34. Economics, instruction in, in high schools, 98. Education, of Butte teachers, 21- 22; purpose of elementary, 91- 92, 101-102, 106-107, 119-120, 193; present-day changes in conception of, 119-120. Educational program, development of, 15-16. Employment certificate, y6. English, classes for those who do not speak, 91, 195, 197. English composition, tests of, 154- 156; results obtained, 157-163. Enrollment, in relation to school census, y2. Entertainments, in connection with night schools, 197-198. Environment of children in Butte, 194- . Examinations, evil effect of sys- tem, in elementary schools, 116- 117, 183; overemphasize drill and review work, 121. Executive officers of the Board, 15-16. Failures, by studies in elementary schools, 92-93; reducing num- ber of, 94; by studies in high schools, 98. Financial records, keeping of, 62- 64. Fire escapes, poorly arranged, 34. First school grade, 122-123. Foreign-born element in popula- tion of Butte, 67-69. Forms used in collecting data, 218-225. Index 231 Fumigation, 47. Fundamental needs in course of study, 121. Geography, nature of instruction in, 131-132; abstract and book- ish character of work in, 131. Grammar, attention to technical, in Butte, largely wasted effort, 127. Gymnasium, 39, 46. Habit formation, lossons for, 102- 104. Handwork, 114; extension of, 137; time allowed, 136. Handwriting, 133-134. 163-167; by E. L. Thorndike, cited, 164. Health supervision in schools, 201-203. High-school education of teach- ers, 21-22. High schools, requirements of teachers in, 2^', salaries of teachers, 29; educational needs to be met by, 45-46; night, 148, 197; character of instruction, 147; course of study, too limited in scope, 148; needed reorgani- zation and expansion of, 148; extension of night high school work, 148, 197. Hillegas, M. B., Scale for the Measurement of English Com- position, cited, 156. History, nature of instruction in, 129-131. Holding power of Butte schools, 73-76. Home School,^ The, by Ada Wil- son Trowbridge, cited, 140. Household arts, inadequate provi- sion for, 139; need for addi- tional centers and equipment, 140-141.^ Hygiene, instruction in, 203. Individual capacities, adapting work to, 143. Information, value of, in thinking, 105; overemphasized, 120. Instruction, quality of, 101-118, 209-210; supervision of, 185- 192; criticism of, 187. Intermediate schools, require- ments of teachers in, 146; edu- cational desirability of, 141-143, 211; location and buildings, 44- 45; cost, 146-147; special pur- poses and educational advan- tages of, 141-143; teachers for, 146; courses of study in, 143- 146; difficulties in inaugurating, 146-147. Janitors, supervision of, recom- mended, 47. Janitor service in schools, 46-47, 207. Kelly, R J., Teachers' Marks, cited, 162. Kindergartens, establishment of, advocated, 122, 193-194; value of instruction in, 194. Knowledge, raw material for thinking, 105. Language, elementary instruction in, 125-127. Legal basis for schools, 11. Lessons, three types of, 102-108. Library, public, 129; high school, 147.. Lighting of schoolrooms, 35-7; unilateral lighting recommended, 36^38, 206. Lirnitations of state control in city school systems, 13-14. Literature, 128-129. Management and discipline, iii- 112, Manual arts, in elementary school, 135-139; small time allotment of, 136; new hnes of work, 137; additional equipment needed, 138; supervision of, 139. Measurement of the achievements of pupils, 150-184; as a super- visory instrument, 188-190. Medical inspection in schools, 201. 232 Index Motive of pupil, importance, 103. Municipal government, schools in- dependent of, 12-13. Music, instruction in, 134-135. Nature study and natural science, courses in, 132-133. Night classes, 46, 196-197; enter- tainment feature of, 197 ; exten- sion of high-school work to, 148, 197. Non - English - speaking children, classes for, 91, 195, 197. Normal school training for teach- ers, 21-25. Nurses, school, 202. Observation, as a supervisory in- strument, 186. Officers of Board, Executive, 15- 16. Over-age, amount of, 77-80; de- gree of, 80-83; significance of, 80, 83-84; cause of, 84-85. Over-age children, need of special classes for, 85-86. Parent-teacher Association, meet- ing attended, 5. Parochial and private schools, ne- cessity of reports from, 50-51, 57-58, 73- Penmanship, Palmer method of, 133; tests of, 163-164; results achieved in, 164-167. Phonic drill, 127. Phonograph, use in school, 113, Pliysical conditions of children, 199-201. Physical training and play, need for more, in Butte, 135, 198-199, 203. Playgrounds, 32, 44, 198-199. Population of Butte, 67 ff.; char- acter of, 67-70; age distribution of, 71. Powers of state very large, 13. Primary supervisor, 118. Principals, salaries of, 28; loyalty to Superintendent, 192; further professional training recom- mended, 24. Private schools, 50-51, 57-58, 73- Probationary period for young teachers, 27-28. Professional training of teachers, 21-25. Progress of pupils, 76-100; affect- ed by kindergarten attendance, 194. Promotion and non-promotion, rate of, 88, 208; reducing, 88-92; normal rate of, 92. Public library, cooperation with schools, 129. Pupils, number of, in classes, 94- 97; classification and progress of, 76-100. Purpose of education, see Edu- cation. Quality of teaching done, I12-118. Rapid advancement classes, 87. Reading and literature, 127-128. Reasoning problems. Stone, 170- 171. Recommendations, look to the fu- ture, 7; summary of, 204-213. Records, of attendance at school, 55; need for simplification of, 58; financial, 62-64, 207. Reorganization of school system needed, 141. Repetition, in drill lessons, 104. Responsibility goes with author- ity, 18. Salaries for teachers, schedules of, 26-27; proposed schedule of, 27-30; in special subjects, 28; in high school, 29. Sand tables, 131-132. Seats, non-adjustable, 36, 123. School buildings, problem of, 31 ff.; types of buildings found, 32-33; new type of building needed, 38-42; typical class- rooms found, 34-35 ; proper type of classroom, 37 ; ceilings too high, 33; ornamentation of, 38; Index 233 need for larger playgrounds connected with, 32, 44; larger school buildings advisable, 43; rooms for special purposes in, 38; high and intermediate school buildings, 44-46; sites for, 31-32; lighting very poor, 35-37; uni- lateral lighting recommended, 36-38; classrooms, 34-37; fire escapes, 34; basements, 34; non- adjustable seats still used, 36; sweeping, 46; fumigation, 47; ventilation, 34; blackboards, 36; toilets and urinals, 34; walls un- satisfactory in color, 36; drink- ing fountains, inadequate num- ber of, 34; gymnasium, 39, 46. School census, the present, 48-52, 58; suggestions for improve- ment of, 49-52, 207; informa- tion to collect, 49; time to take census, 50; card census file, 50; keeping census file up to date, 51 ; educational use of census file, 52; relation to enrollment, 72. School Clerk, duties of, 16; prop- er relations of, to School Su- perintendent, 16. School code, 11-12. School district, Butte, independent of municipality, 11-13; larger than city, 60; freedom allowed by state, 14; of first class, 12; estimated population of, 60, 67. School elections, annual, 12, School nurses, work of, 202. School records needed, 54-59- Schools, Butte, advantages and disadvantages of state control of, 13-14; legal basis of, 11; responsibility for attendance, 74-75 ; health supervision in, 201-203; summer, 87; night, 196-197. . . ^ . Science, need of provision for m- struction in natural, 132-133-. Secondary schools, see High Schools. Sections, size of, in high school, 95-97. Sites for schools too small, 31-32, 206. Small schools increase cost, 63-64. Social phases of school work, iio- III. Special classes for backward chil- dren, 85-86. Spelling, 133; test words, 152; test results, 153-154. Standards, for judging quality of instruction, 101-112. State control of schools, 11;^ ad- vantages and disadvantages of control of schools by the, 13-14. Stone, C. W., Arithmetical Abili- ties, cited, 168. Study, teaching children to, 108- iio. Summer school, local, for training teachers, 24-25; increased salary for attending, 27-30; elementary, for pupils, 87. , . Superintendent of Schools, duties of, 15-20; organization of edu- cational department under, 191- 192; relation to Board of School Trustees, 18, 192; relation of School Clerk to, 16; proper position of, in school organiza- tion, 15-20; mistakes of, 18; co- ordinating authority of, 16. Supervision of instruction, 185- 192, 212; purpose of, 185, Supervisor, primary, 118; relation to teachers, 191-192. Supplementary readers, need for, 128. Survey, Butte, authorization of, 217; cost of, 3; invitation to make, 3 ; methods of, 5-7 ; plans for, 4; purpose of, 3, 5; report presented, 7. Sweeping, 46. Teachers, selection and training of, 21-25, 205; meetings with Survey staff, 5; salary sched- ules, 26-27 ; preparation of, for teaching, 21-23; further profes- sional teaching of, recommend- ed, 24, 205; salaries of, 25-30; 234 Index work of, observed, 6, loi ; ex- perience of, 21-23; part of, in health supervision, 202-203. Teachers' Marks, by F. J. Kelly, cited, 162. Teachers' union, meeting attend- ed, 5. Teaching, quality of, 112-118; methods of, demonstrated, in supervision, 186. Technical work in high school, 148. Tests, standard, value as super- visory instruments, 190. Textbooks, taught, rather than children, 120-121, 189. Thinking, lessons involving, 104- 106; necessity for training, in school, 104-105. Thorndike, E. L., Handwriting, cited, 164. Toilets, inadequate, 34. Tool subjects, bulk of all instruc- tion in Butte, 120. Trades and Labor Council, meet- ing attended, 5. Training of teachers, 21-25, Training teachers, recommended, 28. Trowbridge, Ada Wilson, The Home School, cited, 140. Trustees, see Board of School Trustees. Tubercular children, need of spe- cial provision for, 195. Types of lessons, 102-108; new, of instruction, 193-198. Ungraded classes, need for, 85-86. United States Bureau of Educa- tion, standards for accounting, 64. Ventilation of school buildings, 34. Vocational course for intermedi- ate school, 145. Wider use of school plant, 198. Woman's Club, meeting attended, 5. Writing, T33-134; results in tests of, 163-167. i,„„„„„„tiiiiiiiiii iiiiiiiiiiiiiiiiiiiiiiiinii niiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiniiiiiiiiiiniiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiiii| The first 'volume in the new | EDUCATIONAL SURFET SERIES | SCHOOL ORGANIZATION AND | ADMINISTRATION | By Ellwood P. Cubberley, Ph.D. | Assisted by Jesse B. Sears, Lewis M. Terman, | James H. Van Sickle, and]. Harold Williams | This book is a concrete study based on the Butte, Montana, school survey. | A few of the features that give it distinction are the detailed explanation | of the tests applied to pupils and of the results obtained, a study of the | instruction of retarded pupils, suggestions concerning the advancement of | specially gifted children, criticisms of the work in health control, and full | discussions of the building and site problem and the financial problem of | city schools. Concerning all topics discussed many valuable recommenda- | tions are made. | The text is fully illustrated with forty-seven diagrams and charts. | Cloth, xi-v + J 46 pages. Mailing price, $f-SO. | The first 'volume of the neiv series of i SCHOOL EFFICIENCr MONOGRAPHS | THE PUBLIC AND ITS SCHOOL | By William McAndrew | Associate Superintendent, New York City Schools | This is " a statement of tbe means of finding what the intelligent public wants | of children and how a school system may be managed to deliver the goods." | The book is Mr. McAndrew's report — and more — as Division Superintendent | in charge of the elementary schools of Brooklyn. i It tells '■'■how to write to several audiences at one time; to test teaching, pupils, | and product; to bring the schools back to the public,— to recognize the proprietor- e ship of the public and the partnership of trustees and teachers; to win support by | admitting past deficiencies and listing future needs; to use excellences for correct- | ing deficiencies; to make every supervisor and teacher a surveyor of his own work; | to open the way for general truths by clear statements of concrete facts; to combine = dignity with honor and directness; to inspire a desire for self-testing and self-advance- | ment in teaching and conventionality; to stimulate originality and preference for | results over guesses." i Illustrated, qb pages. Mailing price, SO cents. | WORLD BOOK COMPANY | YONKERS-ON-HUDSON, NEV/ YORK I iiimi I iiiiiiiiiiiiiiiiii mil I! iiniiiiiuiiiiii iiiitiiiiiiiiiiiimiiiiiiimimiiitiiiiiiiiiiiiiiiiiii iiiiiiiiiiiiiiiiiiiiiiiiimiiiii I NEIV-IVORLD LANGUAGE SERIES I ALL SPANISH METHOD 5 I Metodo d'lrecto para aprender el espanol By GUILLERMO HALL Adjunct Professor of Spanish in the University of Texas i I I I 1 Teaches Spanish in Spanish. I 2 Gives conversational command of the lan- I guage. I 3 Enables the student to make his way in any I Spanish-speaking country. I 4 Thoroughly practical vocabulary of about I 4000 everyday words. I 5 More than 300 illustrations which teach I vocabulary. I 6 Numerous and varied exercises. I 7 Constant drill on verb forms. I First Book . . . List price, ^i. 00 ; mailing price, $i.20 I Second Book . . . List price, $r.oo ; mailing price, $i .20 I Combined Book . . . List price, ^/.jo ; mailing price, ^/. 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