ED540564.pdf - ERIC - Department of Education
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DEPARTMENT OF THE INTERIOR BUREAU OF, EDUCATION BULLETIN, 1925, No. 17 PROFESSIONAL STAFF OF STATE ,6EPARTMENTS OF EDUCATION 414 0 4. By 19 ARTHUR WESLEY FEaGUSON SUPERINTENDENT OF SCHOOLS. SWARTHMORE, PA. p. !! \up., MOB Tr WASHINGTON GOVERNMENT PRINTING OFFICE 1925 . - im - 4 ._ e' -. . . , . . , . I- . Z. . . 4 *. .. ; . . 4 X ^ * I .f; y .1-* 4:9:7 tr.4.:rt . e. ; 1 . ! .t! k-ritb t4" )* 4;-A. , e : ij 4 .2..1!4i ,;;-.;:;"ft :1 14-4 .0.00010. V% OF ", I .'11 %I, N. e. 11111 1.. . . : 's mil ' . ". . . . I . . . ! . 4.4; .,:aykjr:4 ".. 144, Alb . 4IP . Orl :or. f . s I 0 . kt- k " oft .1 . ".3 a
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Transcript of ED540564.pdf - ERIC - Department of Education
DEPARTMENT OF THE INTERIORBUREAU OF, EDUCATION
BULLETIN, 1925, No. 17
PROFESSIONAL STAFF OF
STATE ,6EPARTMENTS OF EDUCATION
414
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By
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ARTHUR WESLEY FEaGUSONSUPERINTENDENT OF SCHOOLS. SWARTHMORE, PA.
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WASHINGTON
GOVERNMENT PRINTING OFFICE
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ADDITIONAL COPIESOF THIS PUBLICATION MAY BE PROCURED FROM
Till SUPERINTENDENT 07 DOCUMENTS
GOVERNMENT PRINTING OFFICEWASSINOTON, D. C.
AT
10 CENTS PER COPY
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TABLE Oy CONTENTS
PageChapter 1. Introduction......._ IM Oh NO 1
Chapter IL Growth and development of State departments of educationsince 1900 4
Growth in personnel 4'Functional developmentRise in cost
Chapter Hi. Organization 'and functions of the department of educationin Massachusetts, Connecticut, New York, New Jersey, and Pennsyl-vania 13
Brief survey 13Organitation of the Massachusetts Department of Education 15Organization of the Connecticut Department of Education ______ 16prganization of the New York Department óf 17Organization of the New Jersey Department of EduCation______., 17prganization of the Pennsylvania Department of Education... ___The work of Che several divisions, Massachusetts Department__ _ _ _ 18The work of the several divisions, Connecticut Department______: 20The work of th6 several divisions of the New York Department__ 23The_work of the several .clivisions of the New Jersey Department.... ..24The work of the several divisions of the Pennsylvania Department.. _ 27
Chapter IV. The professional staff 9fficer 31Appointment 31Qualifications 32Term 32
Age__ _ __ ___ e e a s e e e e t e e 33 .
Education 35Prior position 36Tenure 36Salary 39
Chapter V. The staff at work 41Office work 41Field work 44
Chapter VI. Summary and conclusions_ _ _______ ____ 551
Summary .3 I 55The professional staff officerThe staff at workoffice and field activities ____________Conclusion 58
Bibliography 59a
LIST OF/ TABLESPage
Table 1. Growth of professional and clericil staffs, 10 States, 1900-1923_ 42. Comparison of professional and clerical staffs, all States, 1915
ana 19203. Comparison of number of public school children for each .pro-
..fessional staff officer, 1915 and 1920 54. Protessional find clerical staffs, 32 States, 1915, 1920, 1928. . O. :
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IV L1ST QF TABLES
Table 5. Number of States performing certain functions under direct) supervision of professional staff officers or 'department of
1
1900,ed&cation, 1910 1915, 1920, 1923based on replies ofao States
6. Functions performed by professional staff officers as indicatedby their official titles
7. Functions performed undér direct supervision of professiotialstaff officers in five State depirtmevts of education, 1923_..._
8. Total cost of administering State departments of education, 8States, 1900, 1910, 1920 10
9. Comparison of total salaries paid professional stiffs, 36 States,1915 and 1920 .10
10. Comparison of total salaries of entire staff (piofessional andclerical) 23 States, 1915 and 1920 10
11. Expenditures of Department of State of New Jersey 1112. Annual total expense, to4a1 expense per capita, itnd total x.
pense per pupil of the offices of State superintendents ofpublic .instruction of various States, 1921' 11
13. Divisions and nuinbers of professional employees -by divisions,Massachusetts State Departmeht of Education, 1923 13
14. 4Divisions and bureaus and number of professtonal employeesin each, Connecticut State Department of Education, 1923_ 14
15. Divisions and number of professional emPloyees by divisions,New York State Department of Education, 1923 14
16. Divisions and number of profesqional -employees by diVisions,Néw Jersey Department of Education, 1923 14
17. Divisions and bureaus and professional einployees in each,Pennsylvania Department of Education, 1923 14
18. Connecticut State and State-aided trade and vocational
Page
7
9
schools19. Age at which 117 professional staff officers entered the service
of State departments of éducation 3320. Ages of 122 professional stfiff officers, April 1, 1923 3321. Margin between entrance age and present age 3422: Education...of 127 professional staff 'officers in terms of gradua-
tion from highest institution attended, college and univer-sity graduation expressedin academic degrees 34
23. Percentage distribution of education 35.24. Positions held by 77 professional staff officers prior to entering-
State departments of education_______ 3525. Lengthilf tenure of completed service in a grven positioh for 56
22
professionAl staff officer I 3626. Length of tenure in presefit poiitions of 69 professional staff
áfficers 3727. Total length of service in State departments of education fora
1M professional staff officers 3828. SiOaries of 206 professional staff officers in State departments
of education, 192329. Comparison of salaries in certain profession4 positions, 1923... 3930. Salaries of 448 clerical emPloyees in State departments of
education, 192331.,Surnmary Of inspection.,a1 activities, school year 1921-22,
divisiofi of examixtations and inspections, New York...
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4
PROFESSIOM STAFF OF STATE DEPARTMENTSOF EDUCATION
Chapter). INtRODUCTION
*4 The chief factors in State administrition of public education arethe State board; the State superintendent, and the professional staffof State departments of education. Several valuable studies havebeen made .of the State board and the State superintendelit.1 It isthe purpose of the present:study to supialement these with an inv(;s-tigation of the professional staff of State education departments.The term " professional staff" as employed throughout the ensuingdiscussion refers to those members of a State education departmentengaged in a tkpe of service requiring professional knowledge, train-ing, and experience for its prope?exe-cution. he term in its connota-tion excludes all ;who are engaged in clerical activities, such as typing,bookkeeping, filing, and the like. In Chapter III, in discussing theorganization of State departments .of education, the term "staffofficer" is used in the technical sense of an advisory officer with noexecutive duties.
The study, With the exception of Chapier H, is confined to theprofessional staff of education departments in five States, viz, Massa-chusetts, Connecticut, New York, New Jersey, sand Pennsylvania.Chapter II makes a survey of the development of State depart-ments of education in file country at large, since 1900, in order toshow the growth in the size and functional activity of the professionalstaff and to emphasize tlíe need of a study of the professfonal staff.The remaining chapters deal intensively with the five States alretidynamed.
dio
The following considerations influenced the ;miter in the selectionof these States:
First. The manner of choosing the State board of education andthe State superiritendent in this group of &attic, shown bolo"! in
t4,I The &Wig tine Ate: The New York Legislative Investigatlog, 1994; tbe II t of the Illinois Educa-
tion ComEdission, 1909; Organization of State Departments of Education, Mo i ; I an, 1915; Organisation of8tate Depirtmenta of Education, Neal and Tialbach, 1920; The Chief State Education Ofilger, Reeder,1921 All of these, except, the last, deal with both the State board an the, State supetipteSent. SeiBibliography for publishers.
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2 STAPF OF STATE *DEPARTMENTS OF FrDUCATION
tabular 'form, has given these Commonwealths a---real opportunityto develop a philosophy of State'administration of piiblic education.
Who selects State board and State superin.tendent
Massachu-setts
State board of education..State superintendents
Governor..do
1
Connecticut I New,York Next
Govorvor. _ . Legislature.... Governor _
State boArd .. State board ....
Pennsyl-vania
Governor.Do.
It will be seen that in each case the State board and the State, miperintefident are -chosen by rePresentatives of the people rather
than by the pe'ople themselves. This degree of centralization in 'themethod of selectiont 'makes for stabilized conditions and permitsdesvelopment ,.and continuity in a Staie 'policy. In each of theseStates the department of education has had the opportunity to growuninterriipted by the sudden changes in the personnel of the Stateboard and the State superintendençy which popular eleytion fre-,
quentlySecond. Each of these States .has r@atively large professional'
personnel in its department of education. In 1920 New York,Pennsylvania, and Massachusetts had the largést profesiional staffsin the United States, numbering .151, 65, and 39, respectively. Theproitssional staff in New Jersey ¡lumbered 19 tind that of C6nnecticut17 the same year. Excluding New York, Pennsylvania, and Massa-
.
chusetts, only six States in the Union had larger profesional staffsthail New Jersey and Connectieut.2 Thus hi this group of fiveS"tattòs, three have professional staffs that exceed in numerical size411 the other Státes, white tvio have staffs that tire well above theaverage. The Commonwealths selected reprepent. Idepartzitents ofeducation in a relatively high state of development.
virtuallyThird. The functional activity of these five State departments covers
every field of vndeavor in.-which the departments of the 48States are engage& The writer found 23 different functions per-formed by professiaa.1 .stixff officers in 2 or more of the 48 States.'One of these finctions, State pliblicaticon; adoption 6r Prescriptionof textbooks, is 'not performed by any (me of the five States ,in t,,h6group stahlied. Of the kemaiiing 22 functions? 7 'are *engaged byall 5- States, 4 by 4 States, 10 by 3 States, and 1. by 2 States.Hence with one exception, it was possible to study the operation ofeach of these 22 functions in thrclie or more Statés of the group.
Fourth,' The proiimity of each of the five States to Philadelphip,where the 'writer was tempofarily,located, enaBled him to .make per-
Elee "fable 4, p.I Bee Table 8, p. 7. .11se discussion of 'bible VII for method ofideterminins tikes 23 fun/Alois. .1
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INTRODUOTION
sonal-visits to these State education offices, and secure types of ma-tarial that could be made availabie in no other way. The official
, point of view in each State office was learned by interviewing thecommissioner and4zrofessional staff milmberi; and authentic recórdsand reports, many of which were Confidentialin fiature, were madeaccessible. The.facts presented:46ut the five State education officesare on a comparabk basis, as they weise personally elicited by theinvestigator. There. was "meeiing of minds" between the interra.gator and the interrogated.
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Chapter IIGROWTH AND DEVELOPMENTOF STATE DEkRTMENTS
OF EDUCATION SINCE 1900
The rapid growth .and development of-the personnel organizationof Státe departments of public instruction have been outstandingfeatures Qf American education in the last; quarter of a century.This chapter will attempt to traci.) this growth iiÇ three respects:First, the numerieal size of the staff; second, the increase in thenumber of functions performed by the professional staff; and third,the rise in costs of maintaining State departments of education.
The term " professional staff officer" as used throughout thisstudy, and as defined in Chapter 1, refem to arr individual who isperkrming a type of service in a State departmetit of educationrequiring professional knowledge, t,raining, and experience.
The tilrm "clerical stair" refers to those individuals whp aredoilig clerical or stenograilic work under the direction of profes-sional officers.
Table 1 indicates that department, of edtication were relatively'small down to 1910. In the period from' :JO to 1915 an appreciabledevelopment is noted, while the numerical increase after 1915 isitriking and significant.
Since the greatest pent has come after 1915, and *especiallybetween 1915 and 1920, this exCeptional growth is studied, for allStates,- in Table 2. This table reveals. that the enormous jump,noted foi 10 Staies in Table 1, was quite general throughout thecountry, as regards both the professional and the clerical staffs.
TABLE L /tIGrowlu' of professional and clerical staffs, in 10 Stales, 1900-19ti
State
1910 1915 1920
Proles- Cleri-sional cal
Proles- Clerksional cal
ArkaasseConnectkut,. .....MassachusettsMinnesotaNewaerseyPennsylvaniaTexasVermontWest VirginiaWyoming
Total=1IM.
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Cleri- Proles- Clariscal sional al
1
. 3 12 II37 14 412
241:
31 16 145
023 .w X4 6 $
11 13 123 7 4
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1a , ,. 5 6 i 6 10
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_.38 67
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2 11.16 1712 39
2217 12
. 9 657 . 312 67 122 . 7
74 222 254 "go
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GROWTH OF STATE DEPARTMENTS OF EDUCATIONea&
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TANA 2.1-Comparison of professional and clerical staffs, in all Staki,.1915 and. 1920
State
Alabama.AdamArkansasCaliforniaColoradoConnecticutDelaware...... ..... ..... .Florida. ........... ......GeorgiaIdahoIllinoisWiwi 1
WWIAg.
KansaskntuckytoulsianaMaineMarylandMassachusettsMichiganMinnesota'...........-MississippiM.WmuiMontanaNebraska
. Proaional Clerical
1915 1920 1915 1920
4,, .1
62 6 2-7 11 25 17 92 4 3
17 16
1334
14_ 9 I 6
12 1
8 47j 8 ; 66 16 1 36 10 - 5
,_3 9 1
11 39 12
10 : n3 16 14
3 1 12 25 i 13 52 1 7 35t 11 7
111
3636
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2/15 !
836
7616
728
State
NevadaNew II ampattirs.New JerseyNew MexicoNew YorkNorth Carolina.North DakotaOhioOklahomaOre4ronPennsyl vantaRhode IslandSouth CarolinaSouth. DakotirTennesseeTexasUtah_VermontVirginiaWashingtonWest VirginiaWisconsinWyoming
7
Total
Professional Clerical
1915 1920 1915 it 1920
6 5 ; 1
7 ; 9 419 14 17
3 3 21 5151
. 5 20 44 7 3 3
15 18 7 33 8 65 5 3 '
10 652 8 4 34 142 161 6
2 312 11 6 41 _ 6 2 45 11 8 103
.-
I 12 56 5 7 7
14 21 'I. 4 AI2 7
221 768im
434
I Based on Monahan for 1915, and Kalbboh and Neal for 1920. Bee bibliography for Utica
TABLE 3.1-Compariton of .nfimber of public school children for each professionalstaff officer, 1915 and 1920
State
Number of children sjper. each staff offIcer
-N I
1915 i 1920
Alabama 8Alison&ArkansasMoreliaColoradoOaaneetleitDelawareFlorida.GutsIdaho11114913lattianitIowaXmas*luckylistikianaMaine.MarylandMassaohusetts.Michigan.Minnesota
4
lientans
77, 60121, 65863, 889
101, 71895180519, 80032, ellM051
104430930n22
177, 37093,87, 070
196, 19272, ON50, 745
53783,711
199, IN46. Ms
to4 zoa142, 27147, 217
211, 49712, 75143, 92560, 95555, 05815,3806, 414
25, 01886, 46612, 799eo,112, 92142, OTT501 80366, 91822, 13013, 76825,8016, 989411,22, 89134, 38951, r29
State
jNumber ol chtrdrenper each staff officer
1915 \ 1920
Nebraska.NevadaNew RamNew JenaNew MexicoNew YorkNorth Carolina.North DakotaOhioOklahomaOregonPennsylvaniaRhode Islan4South CarolthaSouth DakotaTonneaus.TexasUtahVermontVirginiaWashiWest Virgiafi..WisconsinNycaning
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37, 885 2g, 347
10, 838 7,4474 2N 31, IN
-n, 2418 I le, 280, 11, $ 90
121N, 270 J 34, 56237, 912 , 24, OW82, 062
WI, 2t1 71, MOX 310 30, 208
146, 104 24, 77643. 532 11, 08893, 210 I 34, 14665, 421 ii 13, 3603.
117, 237 i 103, 309475, 000 ¡ PI 408
.t., . ..... . 62,11111 1 10, 673 %
ea, no 1 10, 397 .
Ott 842 43, 02148, 104 X, 25442, 421 60, SU33, 231 .22, 16421, 536 6, 149
One
Based on Tableo2, plus enrollment figures issued by U. S. Bureau of Education for te years indicated.55058-25t-----2 .
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SitAFF OF STATE DEPARTMENTS OF EDUCATION
TABLE 4.1Professional antqlerital slaffa, in 32 States, 1915, 19t0, 1923
State
1915
11 pi? ni.2-13
1* 7 : 2 11 3 12 36 12 13 29 14 4202 , 3 4 ' 3 4
11 16 17 37 14 41 6 1 2 3 8
6 3 8 3 el 33 4 9 1 6 7 76 . .6 9 10 11 152 .4 8 ¡ 7 8 105 5 10.9 11 123 1 9 7 10 7
11 12 , 39 75 3S 1101 14 i 16 16 2610 22 23 24 302 : 3 1 7 1 2 6 26 1 5 I 1 -6 3
I 8 ! 17 12 31 16 29
1920 1923
Arkansas ... .. ........... California.. ............
ColoradoConnecticutbelawartGeorgia.;IdahoIndianaKiwisMaine
t MarylandM muttontsMichiganMinnesotaMontanaNeradaNoy Jersey
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State
1
i 1915 . 1920 1923
,
te, i 13 3 1-R1.B
'14 14-.7!o
New Mexico ,3 2 3 6 5 4
North Carolina.. ..... S . 44 , 20 -. 9 33 , 16Noah Dakota.....- 4 1 I i 7 ; 3 8 '4 3
, 1 .,
Oklithomk 3 6 : 6 6 10 6Oregon 5 3 , . )S . 6 1 5 . 1Pennsylvania 10 : 9 i 63 ;' 46 . 63 ' 60Rhode Island 2H 4 -), 8 5 i 8 i ISouth Vivolina. 4 ....: 14 7 1 14 10itietas 2 .1 7 131:22 33 33Utah . 2 6-- 11 4 8 i- 5Vermont 1 2 , 6 4 5 :. 3Virginia 5 . 8 11 10 15 ; UWashington 5 6 12 . 6 1 14 1
West Virginia- ... 6 ! 7 12 11 13 i ItWyoming 2 2 ; 7 4 1 7 .- 4ti..--....
Total.. ...
Based on questionnaires returned by State education aloes.
A. e 2, :427 412 1432 ' $41
Table 3 is deigned to show by another method the pAienomenalincrease in theo professional staff between 1915 and 1920, and tosuggest the greater effectiveness of State dekartments of_ educationbecause of this increase. The material reduction iii the, number ofschool children for each professional staff officer means closer super-vision on th9, part, of the State, and therefor6 higher standards forlocal;schools, especially ntral and village schools.
The situation from 1915 to 1923 is presented in Table 4., Sincedata are giVen for 32 States, the tendencies reflected are, no doubt,typical of conditions throughout the country. Table 4 reveals thatthe profeisional staff has been relatiTely statioriary since 1920, whilethe clerical staff has cóntinued to grow.apape. While there was a netgain of 25 prosfession ,staff officers between 1920 and 1923, yet 18States of the 32 made no gain and eight States actually show a--
. loss. On the other hand, the net gain in total bf clerical st:aff forthe 32 States was 430, and 20 States show. inereáse in clericilpersonnel.
Two general explanations may be offered for the phenomenalgrowth in die personnel of State departments of education between1915 and 19?O. The first is4he stimulus due to the passage- of theSmith-Hughes Act in, 1917. . Later, when' we consider growth byfunction, we shall see that only nine States reported a jstaff officer incharge bf vocational education in191S, as opliosed tq 44 Statesreporting such- an officer in 1920. In 1915, in a total of 221 pram-Biota' staff officers in 47 States, ÓnI 20, or 9 per cent of the whole,'were engaged in the-fields covered .b.y Ole Act.'
2,4iew York itatudild..
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In 19201.in a total of 617 professional officert, 168, or 27 per ceOof the whole, were engaged in the field of vocational education.'While the whole number of professional staff officers in the%Vnitedtates increased 179 per cent in the live-year period, the -number
engageil in vocational fields increased 740 per cent. This ra14 ofincrease is more impressiv'e when cotitrasted with 123 per cvnt therate at -,which the riumber of professional* officers% efigaged in allother fields, increased between 1915 and 1920.
second general.. asobre probably for this rapid increase in. thepersonnel of State departments of education betwetin 1915 and 1920was the World War. The U-ar made-of publi(1,-6ducation a patrioti'èshibboleth, and State.departments naturally expanded at a period"when pause .strings were 'elastic. Local reasons, such as a strongconstructive chief oker of the iype yKendit.l ordFinegan, undoubi-edly explain the irowth in sthe ease a a few individual States.
.The reasons for the situation since i920are more problematic. Itmay be that the clerical staff has.had a more normal growth and iscontinuing to grow in order-to catch up ivith the professional staff.following the tremendous increw iii the pefiod from 1915 to L920,It may also be a reflection of the policy of rettenchment followim theera .Qf large. appropriations tliat accompanied the war. Clericailsalaries itkie much kiwt4 than pkessionai salaries: so some States maybe following a policy of replacing professional' people with clericalpeople, or at. least Apakiding With- clerical people.
TAni4E.5.----N umber of Stales. pfrformtrig certain functioms undiPr direct supernsionof proffxsional staff officers departments of cdtwation 1900. 1910, 1915;1920, and 1923; baae4 on replies of 30 Stales
1
. Function i 1900 1910 1915 1930 i MaI,. . mill
1. "oattional education , a O 3 8 at High schools ., $ 5 18 25 I V3. Rural schools t 91 4 11 30 14,4. Certification of teachers,:.,.....4 - 7 7 20 ; XI. Teacher training ,
art*. ,
1 - 1 3 15 14& editi subleets (musk% health, fr44.) 4.1 2 3 9 1 407. Klementary graded schools . ..... . 3 4 4 10g. A mericanitation 0 0 .. 061 11 1 134..Teacluar placement service l` ...... .. 0 1 4 4. 10 17boo] buildingsI. 1 2 i . ,
12SpeciAl education (mentally e.t.a paysladly deficient) 0 0 0 I - i tiit Retirement fund . I 0 0 3 i ii i 10li, Attendance , . 1 1 i 2 2 '. 3 i
,8
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IL Higher education (including normal Wok) i 9I
1 1. 1 3 1 ib 4 , 9X. Krening schoolsi 0 ! 0 1 4 917, Legal service.... Iv.. 2 J 4
22 1 2 -4lit Editorial t 0 3 :,, 5 . 5111. Textbooks
1 2 5 --.: I iX.Profeatiotpal licensing (dcictors. dentists, etc 'ij 1 ¡ 1 1 1 2 ;II. AcademiC subjectX Educational measurements,
11 1 4 I) 1 2 1,
A4s.2r. Continuation schools 0 1 0 -0 1 3,) 3,..,
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OF STATE DEPARTMENTS OF E6tTCATIOk.4
ToLi 6. Functions .performed professional staff officers, in 47,ew York, asiVIP - indicated by their official ¡Ws 6' .4
.[The mark (X) indicates in wht}t States the function is performedj0.
Function
1. Vocational education2. High schools3. Rural schools4. Certification of teachers.5. Teacher training18. Special subjects (music, art, health, etc.)7. Elementary graded schools13. Americanization9. Teacher placement service
10. School buildings11 Special education (mentally and.physically deficient)1,12. Retirement fund23. Attendance
Higner education (including normal schools)*15. School libraries16. Evening schools
317. Lftgal service...18. Edltprial19. ttbooks20. fessional licensing (doctors, dentists, etc.) .-21 Academic subjectS22. Educational measurSments
V23. Continuation schoolsA II
190011 1910 1915 I. 1920 1923
X X X I XX 1. /b X X
X XX XX ; X
X X X 1 XX X X X
X X
X.1 X X XX X
X X XX. , X XX X 1 XX X XX X XX X 11 XX X X
X X r X 4
XX X X
X
The State reaching the highest functional de;irelopment is New'York., which was. performing 22 of the 20 functions in 1923.. Thedevelopment in this State is shcoWn in Table 6.
In order to get 'a more complete picture of this nc,tional developsment of State departments of education, the writer drafted a ques-tionnaire which was sent to ea.ch of the 48 State education offices.Replies 'were received from- 30 States, and the tabulated results areshown. in Table 5.5 This table shows that the phenol:mil-11 growthin the numerical size of State departments of education was paralleledby a like expansion in- the functional activities of staff officers.
s Unlike the' numeriCal growth., the funptional .development has con-.tinued during t4e period 1920-1923. The hicrease in the number. ofStates having staff officers enaged in specific supervision is note-worthy in the .following fúnctions: Rural schools, certification ofteachers, elementary graded 'schools, teacher placement, schoolbuildings, sclujol librartes, and "eiening schools.
I States replying: Arkansas, California, Connectictit, Delaware, TIlinois, Idaho, Indiana, ¡anus, Maine,Marylind, Massachusetts, Michigan, Minnesota, Montana, Nevada, New Mexico, New York, NorthClarelina,, North Dakota, 04klahoma, Oregon, Pennsylvania, Rhode Wald, South Carolina, Tensaw*,Tens, Utah, Virginia, Virginia, Wypmiag.
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GROWTH . OF STATE 'DEPARTMENTS OF EDUCATION
TABLE 7. FUnctions performed 'under direct 'supervision of professional staffofficers in five State departments of education, 1923
(The mark (g) indicates in what States the function is performed)
0
o
Function
1. Vocational education2. High schools3. Rural schools4. Certification of teachers5. Teacher traihing6. Special subjects (music, art, health, etc.) .16
7. Elementary graded schools8. Americanization9. Teacher placement service
10 School buildings11. Special education (mentally and phYsically de-
ficient)12. Retirement fund13. Attendance14. Higher education (including normal schools)......,15. School librates16. Evening scWools17, Legal service
118. Editorial19. Textbooks20. Professional licensingo(doctors, dentists, etc ) .21. Acaden1 16 subjects
Massa- Connecti-Ousetts cut
22. Educational measurements23. Continuation schools X
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Xx xx L,x
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Thé intensive study of the professional staff and its work found insubsequent chapters will be confined to five States: M z achusetts,Connecticut, New York, New Jersey, and Pennsylvania. Table 7shows the functional Activity in each of these States. No ohe ofthese States prescribes official textbooks, and therefore they 11,ave noofficers fpr this function. Foi every other function, except educa-tional measurements, tit least three of the States háve sp9cific staff .
of:Ref:its.. Thus it can be seen that the opportunity for a thorodghstudrof the functions performed by State depirtments of educationexists in this group of Commo*ealths.
Tq briefly summarize the section on functional growth, we find thatin 1920 the activities directed by professional staff officers had grownin number to ?3. In 1900 only 14 of these functions were so directed,and not more than four States lierformed any one function. Wefurther fipd that four of these funetions, to wit, vocatiônal education,high schools, rural schóols, and certification of tbachers, are quitecommónly cared for, bit there is great diveisity as to the other 19.functions. Functional development has paralleled the numericalgrowth off the professional staff, except that it haotontinued apacesince 1920, 'whereas the numericil growth in the same time has beeninsignificant. .
COSTSift
ea
The third evidenceall groc;wth ikState departments of education. isincreased co.st of main Cost data, except for recent .years,.ftre difficult tic) pisocure. -This explains why Táble '8, showing 'costiiicrease sitice 1900, is for eight States only. It will 1e n9ted from
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10 STAFF OF STATE DEPAATMENTS OF EDUCATION
this table, that cost increase paralleled growth in size .of staff andlunctional activity. The significant rise comes after 1910.
TABLE 8.-Total cost of administering State department of education, eight States,1900, 1910 anl 19201
State
ArkansasDelawareIndianaMarylandMassachusettsTexasWashington 3West Virginia 4
Ba.se42on returns from State education offices.2 Estimated.3 One-half biennial appropriation.4 _eppropriatiOn for salaries only.
1900co
$4, 900
8, 00e
17, 25516, 2556, 2003, 600
1910
tABLE 9.1-Comparison of total salaries paid professional1915 and 1920
State
AlabamaArizonaCaliforniaColoradoDelaware
Florida... ...Georgia_IdahoIndianaIowa...KansasLouisianaMaineMaryland _
Massachusetts_Midhigan. _ _
Minnesota__Mississippi
1915 1920
$11, 6005, 000
21;80048002, 000
514,12, 25020, 30014, 500
4, 10Q18, 50011, 7005, 000
36, 20018, 300
25, 4007,000
/
$63, 45017, 90060, 30011, 40023, 700
32, 40036, 50028, 01029, 30030, 740
20, 10053, 60028, 45047, 500
103, 81039, 00065, 25040, 600
In-crease
$51, 85012, 90028, 5006, 600
21, 700
26, 80022, 50015, 7600, 000
16, 240
16, 00035, 10016, 75042, 500
67, 61030, 70039, 85038, 600
41.
Percent in-crease
44 7258131138
1,060
47915412844
112
390190143850
187370157480
State
MissouriMontanaNebraskaNevadaNew Jersey
New Mexico.... _
North Carolina__North Dakota...OhioOklahoma
OregonPennsylvaniaTennesseeVermont ......VirginiaWashingtonWest Virginia_ .W yeoMing
$8, 0002 5, 00010, 0003, 729
50, 89621, 37017, 77011, 700
0
1920
$4 00061, 91140, 00059. 693
306, 636135, 19754, 07527, 000
staffs, in 86 tales,
1915
$10, 6007, 2009, 400
13
6, 00012, 5009, 400
29, 1008, 300
11, 10023, 00012, 600
2, 500
12, 0009, 800
13, 8003, 000
I I
411111rarIII
1920
$36, 4001.15, 50025, 00014, 25078, 133
18, 05056, 50016, 30040, 48017, 400
11, 340254, 35025,00016, 340
43, 75031, 79021, 14018, 080
In-crease
$25, 8008, 300
15, 600650
43, 133
12, 05044, 000
900611, 380
9, 100
240231, 350
12, 40013, 840
31, 75021,8907, 340
15, 080
Percent in-crease
243115166
5123
200352
7339
110
2'1, 006
98553
26522453
I Based on Monahan for 1915 figures, and on Kalbach and Neal for 1920 figures.
TABLE 10.1-Comparison of total salaries of entire staff (professional and clerical)in 23 States, in 1915 anct,19e0
State 1915 1920
..__it__. °Alabama $19, 880 010
Arizona 7, 100 24,800Colorado 8, 400 16, 000Florida 9, 500 38, 800
Georgia 17.300 40, 300ictwa 16, 000 44, 420Kansas.. _ ....... 8, 100 27, 349Louisiana__ .... 23,000 67, 700Maryland , 5Mississippi ...... 8, 800 52, 900Montana... do 6 as od 8, 600 19,400Nebrask40.14,..,..e. no : 83; SW
N .
In-crease
$63, 13017, 7007, 600
29, 300
23. 00028, 420
23044, 700
49, 00044. 1009, 800
16, 300
Per Icent in i
crease 1
31825090
308
133178238195
832501102
95 I
State
NewJerseyNew MexicoNorth Carolina_ _
OhioOklahomaVermobtVirginia
Washington_West Virginia_Wyoming
1915
$14,48, 6508, 400
17, 300
39, 19014, 9004, 100
22, 750
23, 70021, 620
4, 500
1920 crease
$15, 750 $1, 250100, 103 51, 453,22, 850 14, 45069, 140 51, 840
52, 036 12, 84628, 600 11, 70021,260 17, 16056,190
j34, 040
44, 210 20, 51031,260 9, 64022,400 17, 900.
Percent inscrease
106172300
3379
418150
8744
398
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GROWTH OF STATE DEPARTMENTS OF EDUCATION
TABLE 11.-Expenditure8 Of department of public iristruction, Staterof New Jersey,by years'
Division
Commissioner.Educational divisionLaw diyisionBusiness divisionBlanks and formsOther expenses
Total
1914-15
Staff Clerical
$10, 000 $2, 40018, 387 7, 3324, 025 9607, 000 5, 831
39, 412 16, 523
Total
$12, 40025, 720
4, 98512, 83114, 48011, 430
81, 846
1919-20
Staff
$10, 00029, 7805000
11, 1ffl
Clerical
$1, 75016, 026
1, 4149, 626
Total
$11, 75045, 806
6, 41420, 80613, 54020, 960
1922-28
Staff
$10, 00043, 700
6,450016, 960
4.2
55, 960 28, 816 119, 276 77, 160
Clerical
$3, 06020, 387-1, 80013, 391
638
Tottal
Prepared by business division, New Jersey State Department.
Rise in costs for the period 1915-1920 is shown in Tables 9 and 10.These tables present total amounts spent for salaries. Since forthe year 1921-22 salaries constituted 83 per cent of the total costsof the Pennsylvaniá Department of Public Instruqtion, the sig-nificance of Tables 9 and. 10 may be aPpreciated. It will be seenfrom Table 9 that all but seven of the 36 States at least doubled theamount spent for professional %salaries between 1915' and 1920.Table 10 reveals Mat all but seven of 23 Stt4es at least doubledthis total salary roll in the same period. The per cent of increasefor total department salaries is not as great as for professional sal-aries. This is due to the fact that clerical salaries advanced moremoderately.
An analysis of colt increase in the New Jersey Department ofEducation over an eight-year period is presented in Table 11. Thelargest increase proportionately is for the educational division,which renders the professional service of the department.
TABLE 12.1-Annual total expense, total eipense per capita, AO total expense perpupil of the offices of State superintendents of public instruktton of various States,1921
State
a,OhioIllinoisIndianaMichiganPennsylvaniaNew JerseyMassachusettsMinnesotaWisconsinConnecticut
Totalexpense
Expenseper capita
Expenseper pupil e
$100, 690 $0. 0175221, 270116, 515152, 535 . 0418476, 656 . 0546182, 590 . 0579311, 504 . 0809208, 110 . 0874233,025 . 0888b19, 050 . 137
Ì1 099. 184. 202. 216. 275. 309. 503. 412. 460. 730
This table is a combination of Tables 67 and 87-A Fiscal Policies, Updegraf7 and King.
table 12 shows the cost pei capita and the cost peer' pupil of depart-ments of education in 10 States, all of which have well-organized'staffs. It will be seen that thQ ¡manual cost per capieta tangos fromless than '2 cents in Ohio to less than 14 ,cents in Connecticut.
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12 STAFF OF STATE DEPARTMENTS OF EDUCATIONCD
annual cost per pupil varies from less than 10 cents in Ohio to 73cents in Connecticut. While these per capita and per pupil amountsare not great, the range of 12 cents in the cost per capita betweenthe highest and lowest States, and a 63 cents per pupil betweenthe highest and 10764 States, is very -significant. Costs of main-taining State departments of education seem letas, standardized thanfunctional practite.
'This chapter served to demonstrate that State departments ofeducation since 1900 have grown tremendously, first, in the numberof their personnel, especially on the professional side; second, in thenumber of functions performed and in the increasing tendency ofthe States individually to assume more of these functions; andthird, in the cost of supporting these enlarged activities.It seems quite fitting aid proper, in view of this phenomenalgrowth of State education offices, to ask who are the people that aremanning the, professional staffs of these organizations and what arethey doing. This the subsequentAchapters propose to do so &Authe professional staffs in the five States already enumerated areconcerned.
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),4L-hapter III
ORGANIZATION AND FUNCTIONS OF DEPARTMENTSOF. EDUCATION IN MASSACHUSETTS, CONNECTICUT,NEW YORK, NEW JERSEY, AND PENNSYLVANIA
A bref survey of the organization and functional activities of thedepartments of education in Massachusetts, Connecticut, New. York,New Jersey, and Pennsylvania will give a general idea of the work ofthe professional staff, and at the same time will furnish a baCkgroundfor the subsequent discussion of the\Rrofessional staff of these States.This survey will cover, fint; list orthe divisions and independentbureaus, with the number of professional employees in each; second,a critical survey of the organization of each State department;third, a descriptive accolint of the work of the various divisions andbureaus in the five States.
Tables 13 to 17, inclusive; list the divisions and bureaus, withprofessional employees in each, for Massachusetts, Connecticut,New York, New Jersey, and Pennsylvania. The information forNew York viiir'as supplied by the administration bureau of the Statedepartment. For the other States, the data were taken ,from edu-cation dire.ctories of these States for 1923. go
TABLE 13. Divisions and numbers of professional employees by divisions, Maua-chusetts State Department of Education, 1923
ProfessionalDivisions employees
Elementary, secondary,, andnormal schools_ _ _ ........ 16
Vocational education 17University extensionImmigration and Americaniza-
tion 22
ProfessionalDivisions employees
Public librarieft 8Blind 1Teachers' retirement board, 1
Total 37.Ten normal school principals expinded.
I Interpreters and field secietaries excluded.
reio587-25t---4 13
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STAFF F STATE DEPARTMENTS OF EDUCATION
TABLE 14.Divisio and bureaus and number of professional employees in each,Con dicut State Department of Education, 1923
4
Divisions and bureausAccounts and purchases .....Americanizatipn,Attendance and emPloyment___Elementary. educationPhysical education and health_ _
Rural educationNormal schoolsSecondary educationSpecial education and standards .
Professionalemployees
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Tests and investigations__ mio 41. 41
Vocational aEditorial 1
Specifil investigationsStatisticsCertification of teachers
Total 0. a.
3 Eight agents resident in field excluaed.Rural supervisors resident in field excluded; three regional supervisors included.Four normal school principals excluded.
21
TABLE 15.Divisioits and number of professional employees by divisions, NewYo%rk State Departyient of Education, 1923
DivisionsHigher education ......Secondary educatión_&lemeniary educationState libraryState museumAdministrationArchives and history.AttendanceExaminations and inspections 34
. 01
.
Professionalemployees
182
19441474
DivisionsFinanceLaw
Profissionalemployees
3
2
10
3
4
Library extensions.... .. Wt. ON MD Mg
School buildings and grounds- -./VisualVocational and exiension educ.a-
tion
Total-
Te&BLE 16'. Divisions and number of professional employees***Jersey Department of Education, 198 .
ProfessionalDivisions employees
Academic credentials and sum-mer schools_ .........
BusinessElementary education
"hysicpl training and hygiene..2
43
Divisibns
Secondary educationTeachers' certificates and ex-
aminatfonsVocational education
31
by divisions,
200
New
Professionalemployees
1
1
Total 22
TABLE 17.--Divi8ion8 and bureaus and professional employeesvania Department of Education, 1923
4
Divisions and bureausHigher educationLawSecondary educationAdministiationAmericanization
Professionalemployees
Attendance.HealthPreprofessional and professional
credentials
1
57
in each, Penn4y1-
ProfessionalDivisions and bureaus employees
Rural education 4
SchooMuildingsSchool employees' retirement_Special educationTeacherVocationalSubject directors
4
1
3
4
114
.14
Total 70.
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ditgANIZATIÒN IN CERTAIN STATES 15
ORGANIZATION , OF THE MASSACHUSETTS . DEPARTMENT OFEDUCATION
0.
The several divisions and the professional employees, in each, forthe Massachusetts Departmeni of Education are shown in Table 13.
The chief administrative officer for the internal functioning 'ofthe.department is the chief clerk, -a nonprofessional officer. This isin sharp contrast to the practice in New York and Pennsylvania,where the chief administrative officer for the department is thehead .of the administrative division, a professional officer, who mustcombine executive ability of high order with a thorough Icnowledgeof the educational problems of the State.
In the second plac.e, the tendeficy to assign new functions to thedepartment of education when State government is reorganizedand consolidated is strikingly illustrated by Massachusetts. Thevarious departments, commissions, and boards were reduced to 20departments in a-'reorganization of the Massachusetts State govern-ment in 1920.
. When the com.missioner of education stated to the writer that"certain ihconsist6ncies" existed as a result of the reorianization,he evidently had -this situation in mind. Theiv is always the dangerin consolidating governmental agencies that some functions will beassigned depattments whose experience and traditioiis .ar6 pot inkeeping with the new responsibilititts. Thus, in Massachusetts thedivision of immigration and Americanization is engaged a puretype of social service, while adult education, in so far as it is relatedto 8choo1A, has no place in its program. The division of the blind is g
concerned as much with the employment and relief of the blind itsit is with education.
. _
Two types of organization define° and described by writers ou industrial lanagement predoniinatein the organizations.of the five Eitute departments of education. These types are the "functional " and theline and staff.""Functional organization consists in so dividing the work "cif management that each man from the As-
sistant superintendent down ¡hall have as few_ function; as possible to perform." (F. W. rayloii, gustedDuncan, Principles of Industrial Management, p. 188.)
The following principle of line and staff organization was formulated by Prof. Harlan Updegraff:"This principle requires in so far as the environing conditions permit:"(1) That a oompetent foiceful manager possessing initiative, sanity, and vision be the chief planner end
chief executive of thetnterprise (the school system), and that all legislative and executive-acts focus in him,"(2) That the various units of the enterprise and tbe manager be connected with each other into a uni-
ts& compact, and yet as simide as possible an organization through two series of closely related organs:Na) 'The stat'yhich will give in the quiekest and surest manner Complete accurate knowledge
ad u expert advice as possible °oncoming the condition in every unit and in the enterprise as a whole; and'(b) 'The line,' which Will secure in the most direct and certain manner the execution of deciSions basedRan the knowledge and advice that gained.." (3) That these two series of organs be so coordinated that whenever it contributes to efficiency, subor-Cute line officers may act upon knowledge and advice of a coordinate subordinate staff officer withoutwaiting for directions from above, and without knowledge and aiiiii*passing to higher staff or line officer.,"(4) That any two coQrdlnate staff and line organs may, when efficiency makes it desirable or-environing
traditions require it, be exercised by the same person."(5) That the distribution of authority and responsibility for tOe various. functions of ltne and staff
sid the courses which various types of administrative action should take be clearly defined atid in such11. way that accountability of sUbordinate to superior officers -will be exacted." (Efficiency PrinciplesApia to 'Administration and Management of Mo( It, unpublished.)
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The organization of the Massachusetts Department of Education,
is well knit find compact. This is especially true of the.older divisionsthat constituted the department before 1920. The commiiisioner is
- the real head of the department; since the State Tioard of education I
is merely advisory. This situation makes for unity in p-olicy andexecution. There are no assistant toffimissioners in 'Massachusetts,and each division director is responsible immediately to the coin,missioner. Although the directors spend some time in the field,espe.cially those in the older divisions, their principal duty is tosupe.rvise and coordinate the Woilc. of their field agonts. The divisionbeads, with one exception, are limited to general direction. Thedirector of die division of elementary, secondarz, and normal schoolsis personally.responsible for the normal schools.
nassachusetts Ras two distinct types of organization in its depart-ment of educition:- the older di.visions represent the" line and staff".type,' and the newbr divisions the ." committe'e " type. As used intills chapter, a "line officer" is one*who executes, and a "staff officer"is one who advises. The term "staff" in its technical sense relativeto princiiiles of otanization must not be confused iith " staff" inthe more general sense of the members of an organization. Exceptfor this .discussicin. of .organization, the term is used in the generalsense throughout the study. In .the divisions of elementary andsecondary eduçation and normal schóols, vocational education, andtiniversity extension the directors are line officers, while the super-visors and agents under them are sl.aff officers. In the divisionsadded sinte 1900 the real executive is a board or a commission.
ORGANIZATION OF CONNECTICUT DEPARTMENT OF, EDUCATION
The organization of the Connecticut Department of Education islargelypf the functional varietY in which one expert executes the workof each division or bureau. Although smaller in idea and populationthan either Massachusetts or New Jersey, Connecticut's Staktdepartment has six more diTisions and bureaus than the former andseven more than the latter. While the Connecticut organization ispredoininately functional in type, it also partakes of the " line andstaff" in that the commissioner is the line officer for the department.There areano assistant commissioners in Connecticut, and all divisionand bureaii heads work directly under the commissioner. Connecti,cut's organization furnishes one unique teature for the group tor five
States in that the commissioner is le functional officer as well as aline officer. He is personally responsible for the normal schools of
the State.The mainsping of the internal organism ip the chief clerk as in the
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ORGANIzATION IN CERTAIN STATES
ORGANIZATION OF THE NEW YORK DEPARTMENT* OFEDUCATOON *swig .
The New York State Department presents an excellent study in'ling and stag' organization:' The board of regents, .whose mandatesare lavi, stand at the. head of the organization. The commisioneris chief line officer to the department. He carries out the legislationot the regents. The four assistant commissioners,, including the.deputy, ai-e virtually pure staff officers. True .the assistant- c6m-missioner for elementally education has. under hi's dirrction five.bureau.1, but the other three assistant commissioners ere primitrilyadviers and not. directors. The line officers are thu direetors of theseveral 'divisions. These lire thi% men who put over the work of thedepartment in the State. They furnish the punch and the drivl,and 'execute through their suhordimtt(.1s the program of the regent:;and the commissioner.
The clearing.point for the internal organization of the New Yotkdepartment it the adzninistratimi division. Departmental activitycenters in the chief of this divisi6n, and most matteis reaching theattention' of the commissionq find pass through his bands.
1711
ORGANIZATION OF THE NEW JERSEY DEPARTMENT arte.
EDUCATION
The organization 611 the New Jersey Department et Education isa combination of the "line -and staff" and "functional" types.The córiimissioner is the line officer of the department, while theassistan( commissioners and division .0iefs are his 'advisers, and inthat sense are staff officers.. At the same time, the deputy commis4ioher and the assistant commissioners for elementary and secondaryeducatio'n qre pure examples of fiinctioitia officers. Each is in expertActing in an executive capacity-in regard to certaiti functions. Thesefunctional officers of New Jersey are field men, in contrast to lineofficers who:for the most part, are desk meli.,One feature of the New Jersey organization deserves especial
notice., The divisions care for Add activities; while the bureaus lookafter office activities. The bui-eau of physical training and hygieneii tho one exception to this gentiralization, and its logic0 place wouldmem to 1)(3 under the direction of one of the assistant commissioners.
The irkernal organization of the New Jersey State education vofficeis directed by the secretary to the.
:ORO4NIZATION OF THE PENNSYLVANIA DEPARTMENT OFEDUCATION
The" Pennsylvania State Department of Education is a highlydeveloped line and staff organfization. The superintendent of publicinstruction is the line offiger for all the activities of du') ,department.
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The deiiity superintendents, the director of the professional creden-tials bureau, and the subject directors tire staff officers, whose workiii the ofli&) and in the field is advisory. The director of the adminis-tration bureau. is. the line officer for dip inkrnal 6rganization. Hestands _between the- superintendent and thetseveral bureau heads.
Also stafids between the department and .the (Aiken of the localschool districts in many impoitant particulars. Zile HA° officers; iitocarry out the program of the department in the State, are the directorsof the attendance, health, retirement, rural edtkation; school buildings, special educatiofi, teacher, vocational bureaus. The work ofeach.of these bureaus has a definite legal basis, a circumstance which.enhances the povw of these line Officers in -the State.
In addition to affording the highest development' of line ad stifforganizatiQn, the position of the aUministroion bureau is a distinctcontribution that the Pennsylvania department -makes in the fieldof State dePartment organization. The State council of education:Ina the superintendent of public instruction work through theadiiiinistration bureau. It is the focal point not only of departmentalroutin.e within the dike at Harrisburg but of all the 'functionalactivities of the *department as well.
WORK OF THE SEVERAL DIVISIONS IN THE MASSACHUSETTSDEPARTMENT OF EDUCATION
40.
Reference to Table 13, page 13, will disclose that there are sevendivisions within the Massachusetts Department of Education. Thework of these divisions. will-be described in the order in which theystand in the table.
Elementary, secondary, and normal schools.The director of thedivision of elementary, secondary, and ilormal sc. hood) e is the rankingdiN;rision head of the department. He is resOonsible for editing,theannual report of the departmént and the.publications of the division.Ile is also charged with the supervision of the 10 ¡Otte normal schools.
There are five bureaus or sections in this divisionrnamely, physicaleducation, eipmentary education, secándary education; research andstatistics, teachers' registration. The work of the physical educationbureah is- largely promotional,. although a certait amourit of super-vision ins&ction,is done in the, schools of the State. 'Through*Addresses at eduCational meetings and through printed bulletins theprogram of the bureau is ,made known. The bureAu has cha.me- of
9summer normitl.schooli 'for physical tetining.The principal.duti4..of the supervisor of elementary eciticitti9n4ri
the following: Editing and-revising State courses of study Mr 4e,mentary school's, inspecting elementary schools and iscommettding
I This descriptIon was written from notes of interviews made in tbe Massachusetts State educed,*office. Where other materials are nse.X. the citation will bs given.
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ORGANIZATION IN CERTAIN STATES 19
improvements, planning teachers' institutes, making addresses,overseeing transportation of pupils, reorganizing union superinten-dencies, holding office conferences, and attending to correspondpnce.
The bureau of secondary education has general supervision of the250 high schools of Massachusetts, One .hundred of these ichooleare .-tate aided and niusLconforrn to certain legal standards, which areenforced-by this bureau. The certification of teachprs in State-aidedhigh schools is charged to the bureau. The supervisor 'of secondaryductition orgmizes and conduçts State conferences vith high-school
principals, advises, with.school authorities in regard to new buildings,and makes occasionairsurveys of high schools.
The principal duties of the bureau of research and,statistics arethe following: Collection, examination, tabulation, and publicati6nof statistics relative to public schools ;-editing the annual report of tiledepartment; preparation of circulars or information; placement ofdeaf and.bAnd chiktien in special schools; preparation and distributionto towns of census cards, school registers, and medical inspectionmaterial.
The agent in charge of registration of teachers conducts a place-ment service for the teacherkand school authoritibi of Massachusetts.Although teachers of other States are registeired, placement is madeonly within the State. Approximately 9,1%o-teachers are registeredwith this bureau.
Division of vocational edttotion.Instead of making one agentresponsible for each of the four fields (agriculture, household arts,industrial education, and cot tinuation schools) , there are three sub-division,4* (supervision, administration, aid teacher training), headedby agents responsible for all four fields. The activities of the vocalstional division are so vast that even a descriptive stímmary will not beattempted. Suffice it to say that in 1921 there were 172 vocationalschools of one kind and another, located in 7.8 cities and towns.'
Division of university extension.The division of university exten-sion has% put into effeCt a comprehensive program of adult educationboth fo'r English-speaking and non-English-spéaking persons. Courseiare conducted by correspondence and.,by extension instriictors atvarious centers of (the State the divisiim was established in 1915,and in tho irot seven yam of its existence had enrolled a total of100,000 studAnta. In the act of*1915 establishing it the divisionrwas.:-.stithorGed to oc operate with existing institutions of learning in the establishmentand conduct of. university extension and correspondence courses; * * * andalso, where it is deemed advisable, to establish and conduct university extensionand Correspondence courses for the benefit of residents of Massachusetts.
The field ot taut! t education for non-Epglish-speaking people wasadded-in 1919.'1111.011 s
- EiglIty-fiftiO An. Rep. Maie. Dept. of Ed. p. 195.Bee article by JamesA. Moyerdom of ttp E. A., Vol, XX No. 10, Dean 1101, pp
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Division of immigration and Aliettricanization.The primary knewtion is to prevent exploitation of-the newcomer. intro types of servicerendered by thi divitOon are to assist the immigrant in the naturalize?tion process, and to aid him in bringing relatives to America.'
The division of publit libparits has genersl supervision of the freepublic libraries of the State, which numbered 424 in 1921. The divi-sion maintains a field service, especially for the aid *of libraries in thesmaller towns. The service of the division is also _extended to thepublic schools, and library, courses are encouraged in the donnalschools.4
The division of the blind is engaged in three types of service: Theeducation of the blind, the relief of the blind, and the employment ofthe blind. An important feature of -the education-al work is the sight,.saving classes. There were 19 such clamoos in Massachusetts early in1922.
These classes are etplippel with special desks; large, clear-typed textbooks, andother material suitable for the instrubtion of the visually handicapped child.The Class unit is small enough to permit individual instruction, and pupila can bekept up to grade.'
Teachers' retirement btiar d .The principal functions performed areto check *deductions of school committeest to keep an account foreach individual member; to deteitnine amount of annuities; and tocompute the pensions of the voluntary -class..
WORK OF THE SEVERAL DIV1S1OUS AND BUREAUS OF THE. CONNECTICUT DEPARTMENT OF EDUCATION'
4 The? 15 divisions and bureaus of the Connecticut Department ofcation are listed in Table 14. Of these the first 1 I are claimed u
diyisions Mid time remaining u bureaus. .
the . direc tot of accounts and purchases is the purchafiing agent. forthld.epariment of educati-on,gthe normal schools, and the trade schools.Re preptiriti standitdized forms forjocal school districts. The book-keeping for the deliarititentis done in this &vision.
The ditivion of Atnericaniz-ation is engaged in the task of making?loyal; active, and intelligert," 'citizens. The program is carried outnot only through Ainerianization classes ba also through communitycampaigns in which organizations such as the. chamber of commerce,the rotary club, and the Young Men's. Christian Assqciation are en-listed. The division's motion picture, " The Making of An American,"illustrat,es anotiliir method of attAck upon the problèm.'
The at4midanee and employment divieion is charged with the en-forcement of aile compulsory attendance and child-labor laws. Its
.
O Eightyglith A matt& Dept, of Edw., pp. 111414.RIM, p. 110.
0 Ms sodded is ea soleset ist,ivIeweamigo ethir,Oss gated..t. ass Rep, Conn. DAL ai Edites, 19" pp. 19-12,:kt tuditer socduatrallira* of this ..
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ORGANIZATION IN =MAIN STATES 21
agents 'go int;o those towns n4 having regular -attendance officals.Two agents of the division have the power to prosecute.
The dinictor. of the divixion of dernentaiy education Confines hisactivities to the largersiowns, since the rural districts are will cari4for in- Connecticut by-the division of rural education. The 4ivision.of elementary education. has prepares' an excellqntiabu;s, IIiItÎtIOd"'Plans for -Progress," for use in the elem;ntary schools.
The director of ¡Apical &ideation and health was in the midstof a prorpotional camliaign when the %%If tier- Hanford in the .spring of 1923. -Altholigh the positiòn liad been but rec.ently mated,the director hid produced four Manuals and numiwous circulars tofurther thei health work of the schools. The division was working fortwo definite goa6: (t) A (ull-time physical instructor: for the largerschools; (2) á health nurse for every town.
Connecticut -makes a distinct contribution to State educaLionatadministration in its handling of thé rural school problem. Thedirector of rurd education has 38 agents, resident in the field, vine.stantly engaged in supervision. Ninetyeseven towns Asir served bythese aients in 1923. The following statement. cohperning the'supermivising agents and their duties will give a clear picture of the workof the rural education division.
DUTIES OF SUPERVIMITiltrOUNTS
Since 1003 State, aid has boon provided for the 4pervisIon of the schools ofthe smaller towns (if Connecticut. Find, part of thé salary of the supervisingagent was paid by the town. Tirday any town ..with 25 teachers or less maymake application for, the appantment of a siipervising agent, whose salary ardexpenses are paid by the State board of education. - -
According to the Astute these supervising agents are the acting school visitorsof the towns in which they supervise. Usually a supervisor has from 35 to 40teachers and from three to thur towns under his supervision.
In order that there may be a' genera!: understanding of the .n3sponsibilitieswhich rest upoh supervisors as agents of the town school eothmittees and asrepresentatives and agents.of the State board of education, there bas been pre*pare!' the following statement of practice:
1. The supervising agents as "acting school visitors" will be held responsibleto the town school comrniptees they serve as well as to this board, through thecommissioner of education, for the organisatic-m, ptogress, and tone of thLschoolsystems In their charge and for the classification, management, and progress ofthe pupils therein.
2. They shall in general visit 'each school twice a month for the purpose ofimproving the Instruction and promoting the progress of the pupils and of notingthe vindjtion of the school property.
. 3. They shall report each month upon blanks prescribed by the commissionerof education and make special reports as requested by the director of °ruraleducation with thesapproval of the ommissioner.
4.. They shall, in tourns eligible to the support of school grants, formally%notify, in writing, the commissioner, through the director of rural education 01(1) any teacher syho is not managing or teaching successfully and any teacher
s Connecticut licikoslovitoL S. Ma Octoberi MAW p L550580-25t----4
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who should for any reason be disapproved, and (2) any building which is not ingood repair.
5. They are instructed to keep the local school officfrs informed of the needsOf the schools, of the supervisoes work, and of the work of each teacher, theattendance, of the children, the coddition of the buildings, and from time to timeof Such other facts as will fix local responsibility and still enable school officers toact intelligently.
6. They shall, either at teachers' meetings or at such other times as seem most-c.onveDient, exclusive of regular visits and preferably outside of school hoursgive to each elementary teacher at least two hours of instruction each month andgive or cause to be given like instruction to each high-school teacher.
7. Each *supervisor shall exercise educational leadership in his towns and shallkeep his communities informed of the needs and progress of the schools, and ofeducational 'movements. in the State and Nation, and shall use ell practicablemeans to this end, including public meetings.
8. As agent# ot the State board of education they shall be responsible for theattendance of all pupils in their schools. They shall report to the director ofrural educaticii all cases which in their judgment require prosecution and submittherewith such evidence and records as may be required under the rules approvedby the commissioner.
The director of the division of secondary education has generalsupervision of the 92 high schools of the State. He visits each schoolat least once a year, and files a detailed report of each visit. The
°director advises with local authorities as to the daily iSfograms,courses of studyl, and school buildingg:
TABLE 18.1Connecticut State ansi State-ailed trade and vocational schools
OAP
State trade scibools
BridgeportNew BritainPutnamSouth ManchesterTorringtonDanburyMeridenStamardNew LondonNew HavenWaterburyWinchester Repeater Arms Co. (N. H.) _ _ _
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11.20en from malt Trade 'and Vocational Education; Vocational Bul. l', Series 1922'--23.aided.
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The division Of 8pecia2 elucation and stdadards is charged. withthe problem of the child who is handicappedmentally and physically.The division was established in September, 1922, and: in its first yearhad organized classes for subncirmal children, And open-air classes.for those of impaired health. Work had also been instituted for theblind and partially sighted.
The 6regu of tests and investigatigns, which conducts scieidificstudies of sdhools by means of standard tests, is a part of this division.
The division ofvocagonal education is engtiged in three main activi4-ties, viz, agricultural education, trade and industrial education, AOixime economics education The nature and- extent of the work of **this division is summarized in Table 18.
The .bureau of publications is charged with editing ConnecticutSchools, the monthly publication of the department; -with preparing%the catalopies of the normal schopls and State summer school; andwith editing the biennial report of the department.
The bureau of special intiestigations engages chiefly in thd task ofmaking local surveys. The department has published several ofthese investigations.
The principal duties of the bureau of statatics are to compile theannual reports cf -all the towns, prepare the bietnial ropört of thedepartment, assist in 'local surveys, compile evening school rpports,and answer questionnaires calling for school statistics.
Tha.teacher:4' certification bureau is charged with the issuance ofteaching certificates. The head of the Imireau passes on the meritsof all applications except a few unusual case5 which are referred tothe commissioner; The bureau maintains a placement service,which is more or less informal. No figures are reported on actualplacements, and the number of requests from teachers and superin--tendents is not large.
WORK OP THE SEVERAL DIVrSIONS AND BUREAUS OF THE NEWYORK DEPARTMENT OF EDUCATION
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The several divisions-and bureaus of *he New York Department ofEducation are given in Table 15. The description of the activitiesof.these divisions andtbitreaus has been so well set forth in a pamphletentitled, "A Brief Account of the Organization of the University andthe Functions of Its Several Divisigns" (Albany, 1924), that it neednot be repeated here, except- for one division. The work of thedivision of examjnations and inspections in administering the"regents system" is distinctive enou! to Warrant such repetition.
The work of the division of examinatiom. and inspections, as sug-ge.sted b the title, falls into two main parts, the supervision of theexaminattons and the inspectio4 of the schools of the State. In tile
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latter* phase, ingpection by this division is lamely confined to the..secondary schoo1f1/4, of which there were 1,064 in 1922.
The examinationi bureau is--Charged 'with the conducting of examinations, the keeping of records, and the
isivance of credentials based. thereon. Exapinations 'are conducted in the ele-mentary arid secondary schools of the State in preliminary and in academicsubjects; at designated centers in the State in subjects required for teacheis cer-tificates; and at other designated centers in the subjects reciuired for licensuie andcertification in the several professions under the supervtsion of the department.
The work of the inspections bureau is carried on by 10 inspectors.Each of theseis assigned to the group of related subjects in, which he 4s best fitted to repre-sent the department as a specialist both in the fiild Mid in the office. In additionto the special assignment, each of these inspectors is allotted one of the severaldistricts into which the State is dividod for inspection purposes, and in this terri-tory is held responsible for the general inspection of all secondary schools, pro-fessional schools, technical ichools, colleges, ánd universities, in so far as Inspeciionis 'essential to the. enforcement of the special provisions of the education lawand of the rules of the board of regents. Under the former particular atten-tfon is given to the enforcement of the statutes-relating to compulsory education,proper sanitation, and fire protection; violations of these statutes are -reportedto the division for such Kction as conditions may render necessary. The rulesof the board of regents to whichl the especial attention of the hispector is directedaite those relating to courses of study, standards kg instruction, adequate equip-ment for. work, and apportionment of academic moneys. IC is furtherincumbentupon the inspectors to report on conditions relating to general organization,diiicipline, and instruction in all such institutions, and in all their grades anddepartments.
WORK OF THE SEVERAL DIVISIONS AND BUREAUS OF THE NEWJERSEY DEPARTIOENT OF EDUCATION
The several divisions and *bureaus of the . New Jersey Departmentof Education are listed in Table 16. The tiescription of these divise-ions and bureau's that follows is quoted from stitenlents Orepandfor the commissioner of education in New Jersey by the divOion andbureati heads.
Legal ditision .--The chief duties of the legal division are to inter-piet the séhool code; to arbitratd school disputes involving points oflaw; to act as a court of appeals on.decisiops of school boards' referredto State department; to determine when State money should bewithheld; to advise with local didricts in bonding- prireedings; 10answer correspondence relative, to points of law.
Divi.ioi of secondary education.-----4'he duties of assistant commis^sioner in harge of secondary .education are:
1. Visi ing, for the purposes .of inspeqion and conference, 156public approved high schools and 59 private high whools, as may titnecessary.
, . .Determining and making ant ofacialirecord. of the eurriculi o.. . ,r
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3. Evaluating and validating all certificates of, pupils' work,, from the, transfer of pupils from school to school or fretintState to State--about 2,500 per year:
4. Investigating 'individual systems, to help boards of educationsolve local' problenis.
5. Attending conferences of teachers of special subfects such asLatin, mathematics, science, modern languate, English, and history.These conferences deal with methods of teaching.
6. Taking part in county institutes, also in city meetings, to dis-c thods of instruction and administration. Delivering public
lecting statistical data, includintg the annual report. Thesum is timing, interpreting, and publishing of these facts.
8. Corresponding with schoo4s and individuals within and withoutthe State.
9. Directing the annual State high-school confereme.Preparing and editiRg monographs rolátive to the content and a
method of the teething of the high:school subjects.Voattional divieion.The following phases of work, are covered by
the vocational division:1. Vocational education: The vocational work includes day and
evening schools and classes ¡tn trades and industries, honmeconomics,and agriculture. The work done by the division is of three kindssupervision, inspection., and promotion. Supervision includes assis-tance given individual teachors in their work, the development of aprofessional. attitude on the part of the teacher and standards as toteaching methods,- and shop *organization. Ihspection includesexamination !of work. of various clasiati in order to see t1)..at t4eyc.oinÌ:1y with the standards of the State and Federal acts: Promo+,tion includis pOblicity in. regard to .the work 'of the 'séhools, themaking Of stlidies and the establishment of coogerativd relationshipswith organizations of employers, employees, farmers', and. civicbodies. *Periodical conferences are held with various :groups ofteachers at frequent intervals for the purpose of developing a 'pro4fessional attitudò of mind and improving methods of instruction.
2. Manual train*: This' includes -the so-called practical arts forboys and .ho.usehold afta for girls, .organ*eri under the nianu.altraining ae,t. Responsibilities in cphnection with this work arevery similar'to those for *oestional education, except 'that .workia. less complicated and not so dependent for its success ipon the .
cooperation of outside organizations.3. Continuation 8chools: The work of the continuation- schools
iucludea all.hy instructioi. for employed .boys and girls between14. afid 16. yearit, *This work "lad involves supeivision, -inspection,
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4. Training of vo.cational teaslors: This includes the trainitg ofteachers 7(if trades and industiies, home economiCs, and agriculture..The .work in home economics-and agriculture is carried im in under-graduate courses at the State agricultural college. So far as tEsdivision is concerned, the work has consisted largely *of conferencesfoi planning the various courses, inspection of the work 'being given,and passing upon.. expenditiires made. The work in ' trades and
. industries is conducted directly by the State department in. lateafternoon and evening classes in various parts of the State. Thiswork involves the selection. of ipplicafits a ,1d their instruction intrade analysis, methods of teaching, etc. Cl sses are also conducted,at the summer school of Rutgers College . or vocational téachers,manual training teachers, and cOntinuation school teachers. Weplan the work for these classes pd assist in conducting it.
5. Certification of teachers: All teachers in vocational schoolsand, classes and in manual training classes are passed upon for certifica-
tion by .this departnint. Visits are made to the teachers' _claimfor this purpose. The department also cooperates with the officeof the State board of examiners in the preparation of examinationji uestioris. . . .
6. Rehabilitation of.persons disabled in induotry: Thi4 department_
cooperates. with the 'State rehabilitatfon commission in the place-ment and training of pèrsons disabled in industry. *This cooperationconSists of occasional conferences with thr representative of therehabilitation commission in regard to placement and training andthe use of Federal funds for thit purpose.. ,.
7. Repörts: Financial, ststistical, and narrative réports are preepared annually for tile Federal Government on actiyities pertainingto vocational t4ucation and rehábilitation. ,
Burea academic credentials and summer mschools.--:-This bureaucovirs several fields of activity, namely, academic credentials, Statesummer schoolsAr teachers, and State teaaers' institutes. .
Under the first of these titles the bureau Jail,. clone of the pre-,liminary ilualifying credentials for all the . professions, except theteachers' certificates, in which there is. the courtesy relationship ofidviser*to the secretary of the'State board of examiners.
Under the State summer schools the. bureau has -direct control ofthe State-supported- summer achools and advisory supervision ofthe accredited summer schools in the %ate.
Extension dames are as yet few in number, but these are under thesupervision of the bureau, with the power of ariproval of the finalrecords. , .,
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Teachers' institutes came iiito the hands 6f this bureau in 1922,Institutes were held in 10 counties, in 19n-23, all directed from theState dkartment.
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Bureau of physical training.The principal phases of work coveredby the bureau of physical training are:-
1. Supervision of _health activities both as related to medicalinspection and corrective physical isxercise.
2.,Participation in programs of teachers' institutes.3. Coordinatio I of t phy*al work oLthe normal scbools, high
schools; and ele :ntary schools.4. Superiisio f of Trenton Normal School of Physical V 'Paining.5. Promoti al activities in ,cooperation with such agencies as
parent-teach associations.6. Foste g athletic games and sports.Teacher. certificates and examinations.The work of the State
104*rd of examiners consists -of all detail work required in connecation with carrying out, under the direction of the State board ofexaminers, the provisions of the rules concárning teachers' certificates.
The head of the bureau has direct supervision over all detail work,attends the meetings of the State board of eXaminers, takes theminutes of the meetings, interviews people who call at the office,reads and answers all correspondence, examines land checks úp allcredentials submitted by applictints for certification in Ne* Jersey,notifies applicants what examinations, if any, are required, and issuesall certificates.
WORK OF CgRTAIN OFFICIALS AND THE SEVERAL BUREAUS OFTHE PENNSYLVANtIA DEPARTMENT OF EDUCATION
The Pennsylvania State Department of Education is of especialinterest because of its rapid development since 1919. Threfi masierbuilders have contributed much to tip modekn conception pf a Statedepartment of educationAndrew S. Diaper, of New York; CalvinKendall, of New Jersey; and Thomas E. Finegan, of New York andPennsylvania. The work of Doctor- Finegan in Pennsylvania beautween 1919 and 1923 btought the education department of that Stateto the front rank. The Pennsylvania Department of Education in1923 was the last word in modem practicae foi the simple reason thátit was the last department to feel the touch of a.master hand."
Deputy superiniendents.The two deputy superintendents are"staff", officers, and as such are not directors of any of the bureaus.The deputy. for higher education is cha'tged with coordinating thew.ork of the higher institutions, both in residence and in extension.The deputy for secondary education is also a coordinating officer,and not supervisory or inspectional, as the simndary school expert
"VIIN41111.0111MINe
Except where otherwise specified, the description of the bureaus in the Pennsylvania departinent isbased on notes of interviews and materials (largely typewritten) gtit.hered at Harrisburg.
If Beet references on Pennsylvania State department since 1919 are: Finegan, Best Plan for Penney!wags; Finegan, The State Program in Education; Updegraff and King, Fiscal Policies; Withees, SurveyOf Pennsylvania State Prcgram in Education. Bee bibliography.
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apt to be in most departments of education. He depends largely4n the work of the subject directors to secure a reasonable degrée ofstandard practice in the high schools 'of the State.
In additioh .to the two deputy superintendents, there was in 1923an assistant to the superintendent, in charge of the legal affair's ofthe department. He prepared opinions for the Wulierintendent, andadvised with local school officers when points of law were involv:ed.Adminiqtration kreau.The following quotation describes thework of the administration buriau in the language of the man who
organized and first directed its activities: .>
This bureau has complete charge of the administration of the department.One of its main functions is to relieve the staff of all such detail as might interferewith the effective performance of their professional duties.. Acting as a hubaround which the whole 'department revolves, it effects an administrativemachinery by means of which all the activities of the department are coordi-bated, thus making an efficient blisinéss office without interfering with the initi-ative of bthe several staff mimbers. In other words, It acts as a service bureauhandlligall mail, incoming and outgoing; Is held respoftsible for till funds appro-priated to the depkrtment; furnishes all supplies, printing, mimeographing, andmultigraphiugi and emploYs all stenographers 'and clerks.. On the professional side it is held responsible for all such problems in financeand general school/administration as may be presented to the departmcnt byloupe ntendents and school boards. It gathers, tabulates, and interprets -allstatistical data---in this way avoidirig duplications. It supervises the financesof this 14 State normal schools and acts as a clearing house for sending representa-tives Of the department to speak at public meetings, institutes, ete.0
The Pinchot Administrative Code of 1923 placed a number otState :lewd] oeds and institutions under the jurisdiction of the depart-ment at education. As a result of this, the administration bureau isnow responsible for the budgets of 37 spending agencies.Americani2ation bureau.---.This bureau is charged with furthering
the ideals of American citizenship, 6hiefly among the foreign-speakingpeopleof the State. Its plan cif action calls for 'cooperation of com-unity agencies, regisliration and location of illiterates, professional. taltining of teachers and Americanization*orkersA state-wide English-first campaign, and a state-wide American citizenship campa.ign:
Atiendquee bureau.The attendance bureau .is, .chargeenforc4ment of the compulsory attendalice law. .i
, are to furnish school registers, census books; and formslor reportingmonthly attendance recoht to the local districts; to inspect andmise attendance reports from the logal school districts. Field
nts -investigate cases of illegal absence and illegal employment.4 " Fred Engelhardt, Organization of Pennsylvania Department of Public Instruction. Amer. f3h.,Board Jour., vol. 66, No. 4, p. 48.
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Hain bureau. The work of the health bureau is largely pkomod-*tion*al, with the view of extending the Meth sert;ice of the schools.Physical education, school 'nursing, and the teaching of hygiene arethe goals that the bureau sets for the -schoole. The bureaus pre-.iTThe-is.thé course of study for health education in the normal §chookof the State.
Preprofessional and professional credentials .bureav.This bureausupervises .the issuance of certificates tO persons satisfying the educa-tional iequiremats necessary to begin the study of one of theepssions. It js [further charged' with the issuance of licenses topractice a profession to those persons who have satisfied the legalrequirements.
Bureau of Ilea/ education.-7-The bureau of rur,a1 education centersits efforts upon the consolidated school movement. Due to itsefforts Pennsylvania has secured some good legislation and has madeconsiderable progress in -closing one-r6om schools. The consoli--dated tichools are rigidly inspected by this bureau.'2
Bureau of school buildings.The bureau of school buildings super--_vises plans and specifications for new schOol projects and sees thatplans ineet legal requireinetits, holds colVerences for the purpose ofreviewing building problems, and preparing a program consistentwith both the needs and funds available. The bureau has on firestandard plgns and specifications for the use of .tniutller districts.In some instances the bureau prepares preliminary sketches. Avaluable service-rendered by the bureau has been to conduct a number-of building surveys for school districts of the State.
School employees' retirement This bureau supervises the provi-sioni of the school employees' retirement act. It keeps the accountsof funds belonging to the retiremont system, prepares statements ofamounts due retirement fund from local districts, and conducts.actuarid studies.
Special education.This bureau has been assigned the field of supervising theschools in State-aided institutions maintained for the blind and other defectivechildren. The buréau also directs the organization of classes in public schoolsfor the mentally and physically retarded.):
Teacher bureau.The teacher bureau performs three functions, vizsupervision of teacher training, certification of teachers, and teacher-placement. The feacher-training work of the normal pchools ahd'teacher traifiing for vocational schools are under MI6 direction of this.bureau. The standards of the bureau -for certification of timchera:
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IS The form on which inspection of consolidated schools iá reported may be secured from Harrisburg.It is especially good.
11 F. Engelhardt, op. cit., p. 48.
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haVe a marke4 intluanem upon teacher training in the colleges of theState. The-,4uTeau,per1p loos the kaportant functibn of evaluathig_credentials agoopp4nying, applications for teachers' Certificates andinterpreting tbet rules governing the issuance of such certificates.The. placenomt:Efervico .of the -teacher bureau is the most ambitiousone in the five States studied.
Subject drirect.prs.,.--.-- The 11 subject directors are engaged in the fol-lowing activities: Supervision of a 12-year program in their special-ties; preparati*of syllabi, participation in school surveys; specialcalls as consulting expel*, institute work; and teaching assignmentson summerriglool faculties within the State.
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Chapter IV
THE PROFËSSItINAL STAFF OFFICER
k survey of tile organization and functional activity of five Statedepartments of-education was given in the preceding chapter. Thischapter and the following one will deal more intimately with theprofessional staff officer as an individual. In the present -chaptercertain personal facts will be presented; while in the succeeding chap-ter a picture of the professional officer at work will be given. Thematerial for this chapter was furnished by data secured directlyfrom the fivb State. offices.' A total'of 133 personnel records weresecured, but all of the items were not answered on a number of theseblanks. _This fact will account for the discrepancies in the totals ofthe several tables based on the personnel records. The tialary datawere taken directly from the pay rolls in the five State offices.
The personal facts to be studied are: Method of appointment,qualifications, term, age, education, position held prior to enteringState office', tenure in departments of education, and salary.'
METHOD OF APPOINTMENT%
In Massachusetts, professioiial staff officers are appointed by thecommissioner upon the recommendation of division chiefs. Theappointment must be approved by the department of administration,which is a coordinate branch of the State government and whollyoutside cif the department of education, Itk is the business of thedepartment of administration to approve virtually all appointmentsto 5taie offices in Massachusetts, largely on the basis as to whetherfunds have been appropriated or are available for the position in hand.
In Connecticut, appointment of the professioñal staff is by jointaction of the commissioner and the State board of education. Sub-ordinate-members of the department are nominated to the commis-sioner by divisions heads.
In New York, the professional staff, excepting the assistant comemitsioners, are governed by the regulations of the civil 'servicecommission. The aisistant commissioners are appoin.ted by the comemipsioner, subject to ratification by the regents. All other profes-sional staff officers are appointed from an eligible list of those whohave pagged citialifying examinations. The successful candidatemust stand among the three highest. Positions in the department
1 In many instances the information was secured directly from staff afters.'fb 31
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82 ST OF STATE DEPARTMENTS OF EDUCATION
are graded according to salary, and advanceihent from a lower gradeto a higher grade is accomplished by passing a "promotion examinit.tion." All positions above the lowest grade must be filled from*within the department, unless the commissione.r certifies-10 the civilservice authorities that no one in the department is qualified for agiven position. The commissioner has the privilege of specifyingwhether or not examinations are open to non?esiderits of the State.For the higher positions the examination is 'waived, and the bases forappointment are the application record, a thesis, and an interview.This gives the commissioner greater latitude in filling the morehnportant positiòns.
in New Jersey,..4mccepting two bureau heads, professional appoint,-ments are made bkhithe commissioner, subjeCt to the approval of theState board of education. The chiefs of the buréaus of ac'ademiccredentials Old teachers' certificates are civil sers:ice emMoyees.
In Pennsylvania, the superintendent of public instruction appoIntsprofessional staff offick's, subject. to the approval of the governor andthe executi..t board, wbich is composed of several department headsof the State government. Prior to the enactment of the PinchotAdministrative Code in 1923, professional appointments were in thehands -of the Stat&superintendent absolutely.
'QUALIFICATIONS
No fixed qualifications exist for the professional officers in the fivesdepartments of education studied. "Only in New York aici the quailu .
fivations very definite. In this State in announcifig examinationsfor vacancies in professional positions thè 'qualifications are* set forthin the circular of the civil service eommission. The commiwiontonally accepts the recommendations of the.. edv.cation departmentas the qualifications necessary for a given .positibn.
Although qualifications are not definitely fixed, except in NewYork, the professional staff .officer, on the whole, is 'well kepared;!loth by training ánd experience, for his job.
TERM
The term of professional staff pfficers is indefinite in each of thefive Siatm, and is dependent upon the pleasure of the appointivepower. For those professional officers whose tenure is protected bycivil service, as in" New York for most positions, and in Nevi Jerseyfor a few positiots, tile conditions upon which servici may be termi-natec arò definitely fixed.
.
111
, .
II
;.,
,
..
.
.
.
rip
.. .
. ,
-
j.
air
tAi
Tiff Ph6FESSIONAL STAFF OFFICpt 88
TABLE 19. Age at which 117 professi4nai tiltkr officers entered Ike service of Slatdepartments of education
Age
QOM ii.-. OM. ---
M atisa-dune t ts
*O.!.
1$ to 11 1ID to 231 2 1II V 21
,e 3 3
%
1t
Ili30 fo 34 T 3 3 ............. 1411 to 39 i 4 1 ........ 11 1
fito 44.... 3 2 2 a 7 8
SO to 54SS to 50.4.
ii
4 3'1 3
1 21
8 i
4 '1
0 to 40
to 64 1 1 i 3
Con-necticut
-. mi.. mg..-
114
New New I Penn-York Iasi). sylvanite, Tot*
1
...M...
TotalMedian .
Rank.. - .
271 1333. 2 32. 6
4 1 3
ENTRANCE AGE
15 . 9 33 11734. 6 42 3 37. 6 r 31.11-
3 1
. The median age at. which men and women enter State departmentsótpitycation, a8 shown in. Table 19, is 36.. Two States have a higher*entrance age than the median -for the group. In New Jersey themedian entrance age is 42.5, while in Pennslvania it is 37.5. ThreeStates have a lpwer entrance age than the median for the group. InNew York the median entrance age .is 34.5, in Massachusetts it is33.2., and in Connecticut it is 32.5.
Ninety-eight of the 117. persofis reporting this information, or 84per cent of the whole, entered State departments of education betweenthb ages of 25 and 50. 041y two of the 117 began their service afterthe age of 55. Twònty-five, or nearly 50 per cent, of the professionalstaff it) Pennsylvania entered the State education Ace-in the decadefrom 36 to 40. Seven of the nine reporting from New Jersey enteredthe Trentori officò after 40.
The relatively high age _at which men and women are invited tojoin the staffs of State departments of education indicates .a thoroughfoundation of profesaional experience for the work of State leadership. ..
TABLE .20. Agew of 122 profess.ional staff officers, April:1, 1923
ID to 24IS to 39
W 34toi39
40 to 4441 to 49ID to 51
to 69e to 64
to!.
70 to 74
Age
'2
Tote.Medianlank
1Mama Con- New&meta neaten t York
-1-
126 361 41
New I Penn-eraey sylvants
1 /
3 _
223
0,0-1110=4122
3
MD s e I
3lb
716
7
L3 15 3 39ta. 5 48. 75 43.9
4 1 2 3
-Total
=1101
. L.
fr;$11L
4 .
I111 da0000
4,0000 S .......0.,
. 01, 01.. amwlIllwr.o am. 0110. .00. e 001.a S.
. * ...a.
40.4000.,-04.... 0
0 S .0
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- ,
1
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..... .frilf
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e Oa ...rt.
....... 0.0
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1.0 ea a 0 i0,s. a- a a .0 ego.
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..ip 0 0 0 160011
:411
......... 0 . *
.... ..... - i.i
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Wee e 00 0-4b .....ft... .......
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1 1 ..0/1 ......... .0
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.... 0100.4000,. 001000 04
.I
17 . _ ... . 4 e . 4.
Ow a
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444 .....
22 ;
e0.00040reof
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4:p
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.1040 21B 76 . ...
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.1 ., .. .
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. t¶: i 1 - : . r, ; , . .
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113017
afl-'
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3
6
84 STAFF OP STATE DEPARTMENTS OF EDI°C T ION
PRESENT AGE
The ages in 1923 of 122 members of the five State departmentsinvestigated are given in Table 20. The median age for the groupof States is 44.9 years. Two States, New York and New Jersey, areaixive the group median. In the former the median age is 52.5,while in the latter it is 48.75. "Three States, Pennsylvania, Cons.necticut, and Massachusetts, fall below the group median. InPe ilvania thenledian age of a staff member is 43.9; in Connecticutit is $.4, and in Massachúsetts it is 38.75.
Only seven of t4e 122 persons reportiqg their present ages arebelow 30. New York, Now Jersey, and Connecticilt report nocases 6elow this age. New York is the only State showing agesbeyond 70. One hundred of the 14.:.2 cases, or 82 per cent, lie betweenthe ages a 30 and 55.
TABLE 21.Margin beitrecn entrance age and .prcsAt age
-
. . . - . . State
INN
1
Median Median Differ-pram% mama) t ewe
New York .,. i za s 34, 3 110
.. New Jersey - 4 46. 73 41 1 & 2Pennsylvania , .43.0 37, 4 t.4Connecticut* 39.4 32. 6 &IIMassechusetts . 3& 73 33. 2 & 6
1
A
An interesting situation is 'revealed by Table 21, The differencebetween the prosent medián age of staff menilprs in State depart-menta and the median entrance age, excepting New York, rangesfrom 5.5 years in Massachusetts to 6.9 yeairs in Connecticut. inNew York the difference is 18 years, giving evidence of what thisstudy shows in a number of places thal the staff of the Empire Statepossesses a permanency and stability that is unique.
TABLE 22.Bduadion of 1117 professional staff officers in terms of gro;duation fromhighest institution (Wended; college and university graduation expressed i*academic degrees
Degrees
High schoolNormal aobool
B11 8'Pb. BB. P. gM. EA MM 8Pb.14. BPb. D
D
Massa-chusetts
3
Commie- NewWig 1 York
1
84
6
1
12 , 3
I
New : Penn-Jeney 1 sylvania
i
2 ; 1 142 4 7 171 ' 7 27o ;, 14 11
i I 2
;1 1'
1
1 13 117
4 4
Total X ..
1.1
4 /.
i
V,
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p.
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.
.
.
-;elow
-
.: 7... -
'1'-.q. /pro.. .00,61.... ..111k*,10
a. -.
we. -a. ol --eon
J.
.. -46. *
000000... 41/111;06:
00000
.
4
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.
.
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sestabeeeeeeese
II
4E4. 44
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we,. * .. ...........
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2 . i5...... 4/1
a
i *Ilk
, ..... ot ...... ...Norte. 061.15,
.. 6.1..... ......... 00000 o
4
1 1
........... . I. ....
.01
:1' , MOP..,
400 W.I.. 000000000000000000 44104111,4110414,1¡4Wee.I
. 4....t .., - . . s .
1411.1$: .. .:, 1
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............. o...
I 4
12I
).4.. !I ' ., r . .
...pi .,,. .- . .- is ..1. -"' -, -.:. . '' .- l 1111***.P**.....arr*rr-,r ; 'Vr144" ' " .4..... i '- "-ik .. ty)is,. , -
.. d , . I
t AO Vi fJrill j'ilfewl$1.-I4:!?-4........0....).7. ..,. .,) I. ,),,,............,,(0, i . 1,...i . i.,,, 1 . i 1 f ,.. ',AA r i lot) .1 ..tt Ii, 4.1";» .. : %it. si, ... I.... .. 'I . , '
. . :
A S fi . 1i l % J
A I b A rti: . ?, :.P ,- .Y.%"4:.t 'tt!',i' ' rt .. ., ! " 7. '.' 4. .1 ...141¡ . In 4f.. ' '....-.1;;. ' , ... . A ,, .. %,
&. '? 4,0....' ' ' 0, \-, . , i t: l''. ,'".-: rt ° 40. .. I ,. ... , .( . a s ..
. 04
;.
{ 1"1 7`iNt./..,;' .!Ci:11'.s. 101 i'; ....., r../...,,' ,'';' ' ;1:,`"...j. ".."',,' ? 't i : I.% 4V. % 1 ' .'S 41 !I: ;le Ji t :VI' . 7 . I. ' A 4f ,,. ,. .,, . 1'. t i '
'I* ;.1*P 414 '4 "tr' TN il, . 'T ..' , .: tee! 0'. ..,' -. .,' t.1! 44.' . .. T. '' 1%.'., 1 V 1 -' 2.6 , . 0
1, r 14 I 1 , .-.1 tirS P.:0. IV,Z"; i i 1 r . : .4 -' . !.,, '-,),"r" Ws ' - ' ';.1 i lak" ....4_1114,4z.d.r.1,1?tr: ft. 1 ,,,, .
*
Total- ob.- - owa owoMoi1,
P.
.
4
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11
THE PROFESSIONAL STAFF OFFICER
EDUCATION
35
The education of the members of the *five State- departments ofeducatiòn is shown in Table 22.* Above the normal school, -thetraining is exPrOssed in tams of the highest academid degrees earnedin course. Of the-127 stag members giving thair education, 75 percent are college graduates. Of ihe 14 individuals who did notadvanc* beyond the high school, 10 are found in Massachusetts.Of the 17 *ho were not trained. beyond the normal school, 12 arelocated in Pennsylvania and Massachusetts, seven in the formerState and five in the latter. Of thé 28 staff members in the-Massa-chusetts office, 15, or 53 per cent, are loss than college graduates.Connectictt is the only State among the five to have its professional
'staff compos0 wholly of 't ollege graduat-es.Forty-eight, exactly 50 per cent, of the 96 college graduates, hoid
the bachelor's as their highest academic dope.s. The holders of thebachelor's degree number 38 per cent of the 127 reporting on theireducation. The 32 who have earned the master's degree are 33 percent of the college graduate's and 25 per cent bf the total. In otherwordo, one member in every f(inr of the professionil staffs of the fiveStates holds, as his highest academic degree, the muter's. The12 who have been awarded the Ph. D. are 12 per cent of the college
-.graduates and a shade under 10 per cent ,of the total number. Onestaff memberin 10 has earned the doctorate..
-The percentav distribution of the education of prdessional officers,classified as to four ranks of, attainment, is shown in Table 23.
lamer- - W
....
TABLE 23.Percetilage distribution of education .
Attainmeit
bra than college11IchebreMastersDoctors
Nam New%lugs i York
1542
Is
low.
17 1 53 44 039 25 11 712618
22at11
TABLE 24.Pcnitions held by 77 professional staff officers prior to entering &aledepartments of education
141111111
Positions
Teacher (below ooPege)Principal.DirectorAssistant dbU1dDistrkt superin entAssistant co= intendantalesentY=Z
.11.
Connecti-cut
. ta. *00 AN.* ... -
INew New PermilY1-York Jersey vanis Total
4 258 141 11
evaloo...0m4.4.4"
1 164 6
Is.......IMINM.....01~11~0Masamsmrtaoftw.IwaNWEswomms.s.r.
wsoglii*
I.* :
.
,
- 1"P.M e MP
,
fff ........-ND I...NI.
, * AO. * fffffffff a. or lip
wpm. ow 411, or .4..
i 0
1 Moan- I Ne leconte41-; chuselts !I Jersey cut-
1
li *
1 e 17'
.
0 i 6............... ......_. .......___ ...
ear. ..............-
304,
/ ...... ,.. . ........ . ... ......,.... ..... -.. 4.. ... ......e. ow. P .I r
,
i . Masai' 1
i &mats ; j 1 ,I
I .3
3
, 4 ,
..w ..........., ....................... i, ..mrOir .69
I ,Wig. 1
4
swam_ &4.
OOOOO 1P * Ob.*** 0,6110
.....ffffff.
v su,
941. .....
1 III
* 414Ib * On. 111. OOOOOOO
3
.. .f
100,floirbarl.111110 ID
1 '1 I 40 g
4
3a. .1
lb SP 416
;
3; 19
3.
J
MINVINV
I mg, wpm.
1
,
dent.. 10
Total.
.
e
19 .
2
21
8 7 27 77
86 STAFF OF STATE DEPLITidElifTS OF EDUCATION
POSITION PRIOR TO ENTERING STATE DEPARTMENT
The positions held by staff inembers immediaely before enteringa State department of education tote Indicated in Table24.
It will be noticed that 25, or 32 per cent'of the Tresses, entetedState education offices difectly from teaching" positions in publicschools. Nineteen, or 24 per cent of the whole, entered from thedistrict superintendency, and 14, or 18 per cent, came in from theprincipalship. The coùnty superintemiency, which exists in onlyPennsylitania and New Jersey of the five States, furnished 8i or. loPer cent of the total number. gassifying the. 77"cases under twoheadssupervisory and teaching--46, or 58 per oent, entered Statedepartments from supervisory positions, while -81, or 42 p(4 cent,entered from teaching positions.
The'plercentage entering fróm supervisory positions is distributedas follows al/1611g the five States: Pennsylvania, 70; New tork, 67;New Jersey, 57; Connecticut, 50; Massachusetts, 41. The per;centage entering from teaching positions is: Massachusetts, 59;Coniiecticut, 50; New Jersey, 43; New York, 33; Pennsylvania, W.'Massachusetts is the only State in which more than 50 per cent ofthe professional staff (;11 the department of education t-as Pecruiteddirectly from the teaching ranks.
4.TABLE 25.----Length of tenure of completed service in it given position for 56 profe$-
sional staff officers
Years
0-2 d.3-5 95-8 94-11.912-14.915-17 9..18-20.921-23 93549 9Q.-46.9t.
MedianBank
411,
1111.1
Massa-chusetts
312
Connecti-cut
2
........ 4,
.11.10
255. 4
3
,)
NewYork
22421
OP e .110 aw
44. 5
4
4TENURE.
The length of terms of completed service in specific positions isshown in Table 25. ,Pennsylvánia is not included in this table, asthe reorganization beginning in 1919 created a limber offnew staffpositions for which this,. inforn1ation is not available, 48 le* of theterms had terminated in the spring of 1923. It will be seen that 5.5years is the mediaii amount of time spent in agivenvoilitioti. Thi.e doednot mhan that ihis is the median professional life of a staff officer as
kter
such, for stag Members are frequently transferre'd to ,other ppsitions
,14-T.-
'1
7. 11
NoyJers4
272
.3
Total
23
1
16
1-1
5. 62
565. 5
fl .1.14.
II
.P
1.*
1'
P; 1
,"nra
.
J./- TY. oimh
411.11
9 : 01191
-
-
.'..... 41.11/.41141.9W.
11P
.
.
Totil
fffff
- r
11. e e eeeeoeee 4E...OD
51
1
F.1
a --do 4Iw 11; 11, O. ea
01
ea ,dor
. .. . . .
1
omo.A a.
,
..... ., . . . ,h
fo I
. h
'.4.? -r. ' :" ; ... ... ... .- . . - .
I:
/
¡Is"
-sli'r II *1.
d
-jov .41)
* r
:14 A .;;.....[., ,1"k o
1%17:: '' ',á 4* .41ffrol'14,e41. . r:*
;.f.1.4,". 40.; a
44 Nye
.
t.
9
Cs
1
- -
11.
6
11622
4;
O
a 6
PROFESSIONAL STAFF OFFICIR
within the department. New York, with 7.1 years as its median, isthe only State to rise above the group median. The median of Con-necticut, which falls lowest below the group median, is 4.5 years,only 1 year less than that for the group, showing that there is Maivariation in this particular. Only 4 of the 56 completed termsketorded were more than 20 years in d ation, while 8 ran less than3 years. It is interesting to note that tbe range below the metlian is5.5 years, while above the inedian it is 40.9 ¡rears.
TABLE 26.---Length of tenure in present positions of 69 professional staff officers
VINI.
Years Massa-,-4. 00chusetts
0-2.9 ! 73-5 9 1 116-8 9 ,
I
59-11.9 I 3
12-714.9 e15-17.918-20.924-20 927-29 930-32.933-35 9
TotalMdiabRank
p
A
4
Connecti-cut
45
NewYork
91
4
2231
NewJersey31.
3MO OM. 410.
4WD
...... e
Total
41. M11.
1728638
a
264. 4
124. 8
2
2213.5
1
2. 24
. 694. 8
fable 26 represents tenure in present terms; and *as in Table 25the number of years spent in a given position, and not the totalnumber of years in the State department, is .indicated. Penns371-ania does not appear in this table for the sain.e reasons given forits absence from Table 25. The median number of 'years completedin present positions, in the spring of 1923, was 4.8. This is 0:7 of a-
year less than the mediangor completed teims shown in Table 25..'As in Table 25, the lower 50 per -cent of the range is compact; w1;.ile
the upper 50 per cent is widely scattered, extending froin 4.8 yeais to35.9 years.' New York, with a median of 13.5 years, is far above thegroup. median. The median for Connecticut ise identical with thatfor the group; while Mass!tchusetts and New Jersey fall below thligroup median. The low median for New Jersey, 2:2 ¡ears, is largelidue to a number of new appointnients itik 1921, followihg the resig-nation of Commissioner .Kencitti.
:`
,
TIT
-. *
87
.
41
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SOO. eel.. s e e C S e
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0.00.Ose. .4
We 11
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-rem.
..... .,1
.... .
1..... 40411
6
es...........
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. . .4
;7-77 4727.
II
4
.
41
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:'t 41 .
et*. . : . , .1 ):
11%54.:#"; .4 L Prt 14 **
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re-At- 1."
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. .. ,k,
I.; , . . 1 9or
. . ...,:a.,. :' ,'.. '..J.'
. ,. t! , ,'.! -..\,..ii
, ;-..r...,.',:ire/ 44, .V. 0'11
..; ' , ., .-..i'...-';''.':. ' ::. -.....,,"t:', '!.::%:...41*--isiq,..to,,
'. :. 4 ... .., , 1 14 1 4 1;::.;;;:;1:4..1:::?.44r1::1.1?':
:
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/* 1* ,4 .i e *r
r
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.i ;.`-....4:::. ..1:'..` .**:"" :...,:;;,..k .Ì1:41:46.:1:,..:. '...7):.1.;1': I s'.,;* ':", .1...: ',..11 P: 4:;*; .;': i I.: ..1,T '1; .."..... .. 4. ,7,4"*...41%:rk.,.. -:. 41 ...11. .7 ... .: 1..;14: If.:
..f, . , ..l. :e ..1. ? . , .1 .1. X .i.../.. 4
- ..- , . i!. .. . 11.,...1 .1
- ' 111.''..."1. :- 1.' '' .4-7 - "4.4' .0..*** : gr.:$.4 K -- 'LT ''''' , '. -A". .4 Y.:' :ti1 14'. 14': I.' ..0.'f,.i.4ii
.. *. -' ." e r ' 2 - ... ' . ' ::.:6+.; ,;%' ..!!' ' e}1: 1.:1. -..:4,. ik.r. s.:}iti ., 1,.....1. : ! .: t; 14-.4.
-.. ::. . ! 1 . t. .' -: : 't gi'. .' % . ' . 4 -,1, 1- ...*pc b' -.I. O.. )?-16-t:' .(41-,. a''''47.'..e 1 /itt. i.P.4:-!' --I't.4;)Qh11,.?-:.-..ev;')-..t
, , , . .,-, . , i:1,,,.*% ¡. +.7-117-3.7 ;.;.. , 4e. A': ...r .1. /- Q4: '' :44' S11-4'.J.Tfjr)"110*/. ,. f.f: '"Iv .mbj:.....liv,.ti.44
... 1...,f'k- 11.4.1'. 4.0 .1 . .,., ..., y...,,: 4., . A..: _......-r;di) ! .% IT ,... ....jk f. .10. ; , F. .; , - f I. .. ..1.1 ,,,- ii...-f?t ;.. Iv% ;. 1. -tdy rtt iL A ''It'll. C*4".' i .;4,43:;;SN:',.!__.'.:1.., ,S;:_afjlzaru1Z.4.*,.4..1.;;,,e ±411.- ._-.-- -....- ....__.,:-..-.
7- .- ii-1..:::? ''-'4)11-';'..i..;'`I'4.......ti '..".: 'iig:%*')11.::...A110...,...; ).rit o f. ':Li .:.1....t!'"' *;:,til-;i4...rv:illiP;!;r:.-1.41.04.:r.t;I:;?::5,P01:-;-.z.li.':;'1.;.."-..11'.11%.144., lei_11%1411;17.-4:4')".)illi41.1'2.3:1E,f1::$°?L'?';'.Sbilii. .e. -:(,tilkittl'11.. 4
! I . ' 1 ;.:.. i / ' ,-I....-114.2L21. l'?"-.4- '--., ---e-"tm-L. -.
,.
.
A
a
...0.,,1111
AND III
a
9,
q 1
,
88 STAFF OF STATE DEPARTMENTS OF EDUCATION
. TABLE 27.Totai length Bf serviie in State departments of education for 131professional staff officers
Years
1416
IMassa- Connectl-1
chusetts cut....
0-2.93-5 96-8 9941 9
12444915-17 918-20 921-23.924-26 927-29 93042 933-3& 9
49
3
1
1
NewYork
341
1
2 31 2
311
1
5
1
4
NewJersey
Peanayl-vana
421
...... .0.11M
GYM, =0.
1631
533
Total
"-
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1
1
61
Total b 27Median 6.1Rank 2
135.6
3
23l& 7
1
9.3. 75
5
59 1314. 3 i 5. 2
The median number of years spent by 131 staff members in theeducation departments of the five States is 5.2 years, as shown inTable The fact thät Pennsylvania, with a large number ofrecently created staff positions, furnishes 59 of the 131 cases tendsto reduce the group median. The median for New York is 15.7yeais. Ten of the t*enty-three reporting from New York, or 43per cent, haire been in the State department for 18 years or longer.The median for Maspachusetts, 6.1 years, is also above the groupmedian, and here again the early establishMent of a modern depart-Aunt is reflected. Connecticut, despite a reorganization in 1920, isslightly ab9ve the group median. The PennsylVania median., 4.3years; is high, considering that many of the staff positions had notbeen in existence for that length of time when this investigation wasmade. The relatively low. median for New Jersey, 3.75 years, isexplained by the infusion of new blood with the) advent of a newcommissioner in 1921.
The 'writer was assured in conversation with a number of stagmembets in the State education offices at the five capitals he visited,that. the tenure in these positions is good. The great majority ofresignations are due to opportunities' to enter broader and moreremunerative service. Politics, while sometimes affecting the tenureof the chief State education officer, practically leaves the staffmembers untouched.
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THE PROFESSIONAL gvkAFF OFFICER 89
_TABLE 28.--SidaHes of 256 professional stal officers in State departments ofeducation, 1923
Salaries
$12,000s1O0000411,99919,000-$9,24917,500-$7,749$7,00047,249%,500-$6,74916,000-$8,249$5,750-$5,999$5,50045,749$5;000-$5,24914,750-$49999$4,500-$4,749$4,250-$4,499$4,000-$4,249$3,750-t3,909$3,500-$3,74913,250-$8,499$3,000-$3,24912,750-$2,999$2,500-$2,74912,250-$2,4N$2,000-$2,249$1,750-$1,999$1,500-$1,749$1,250-$1,499
'OP
Total
MedianRank ,
Massa-chusetts
3157
Con-necticut
` NewYork
2
1
a
3.542 1321
38 1. 14
$3, 071 $3, 7504 a
1
2
4
1
887
a151185
1313147
125
$2, 8.59
NewJersey
Pennsyl-vania
1
41
2
4
1
1
Total
21222
1 68 101 12
13 181 21
48
11 2520
8 2985. 16
111 17
1616
16
$4,5001
63
2032
256
$3, 812
TABLE 29.-Comparison of salaries in certain professional positions, 1923
[The figure; in parentheses indicate the number at salary givenr
Position
CommissionerAssistant oommissioner
Secondary educitionElementary educationVocational oducationAttendanceSchool buildingsRural educationHealth education ,Business manager fdr departmentSubject directors 4
06.
Massa-chusetts
$9, MO
3, 7503, 7506, 000
5, 0003, 240
Con-necticut
5, 0005, 0005, 0003, 000
4, 5004, 500.3, 000
New New Pennsyl-York Jersey vania
$12, WO(2) 7, 000(2) 5, 500
1 5, 5000 1 5, 500
I 5, 5004,0003, 750
$10, 0006, 500
6, 5001 6, 500
6, 500
3, 600
5, SOO 6, 000I 4, 500 5, 500
(?) 3, 300(1)-8, 250(1) 2, 750
slz 000(1) 7, 500(1). 6, 000
I 6, 000
141
1
1
2
0005, 0005, 0006, 0006, 500 .
6, 0007,6,
800000
5, 5005, 0004, 7504, 000- .01111
I Assistant commissioners. a Director of administration division.'
SALARY
Salary data affecting the professional staff officer are presented inTables 28 and 29. It will be seen from Table 28 that the mediansalary is good, except in Massachusetts and New York. It is inter-°sting to note that New York, the only State 'with civil service forits professional staff, pays thelowest salaries.
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40 STAFF OF STATR DEPARTMENTS OF EDUCATION
A comparison of salaries for the more important professional posi:tions is made for the five States in Table 29. Except 'for severalglaring ,inconsistencies, the se alaries are fairly uniform by position.
TABLE 30. Salaries of 448 clerical employees in State departments of education,1923
Salaries
83,000-$3,099470042,799480042,899_$2,500-$2,599.
14004239930042,39920042,29910042,199-80041,899
,700-$1,799,(100-$1,699,500-$1,599
$1,40041,499$1,300-$1,39941,200-$1,299,11,100-$1,199silmo-s1toss100,4999 b.
Total
gp
MedianRank
M -chulletts
=1.
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585
1226
(251110
Conine- ! Newticut I York Jersey sylvania
.
Ne Penn-
21243
3333
1 21
1
1
221
896
18112322204029
2
1 21 11 14
31226 38
0000.00.01
2
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Total .
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2142954551
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$935 $1, 360 $9505 1 4
2911:111111111
$1, 2752
80 448
$1, 100 89933
I
Clerical salaries are presented in Table 30. It will be seen at aglance that they are amazingly low. OnlY 14 salaries in 448 posi-tions are above $1,800, and three States pay median salaries leasthaii $1,000.
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THE- STAFF AT WORK.
The general.. activities of professional staff members may bereadily. classified into' office activitift and fiekd s. To besure, the distribution of time between office activities and fieldactivities varies greatly with staff otters, but all engage in both-types of work. Furthermore, there are common types of problems,in the office and in the vfield, that members of a State educationdepartment must meet. In the office no professional staft officerean escape correspondencé, callers, teiephone calls, reports of onekind and another, preparation of syllabi, bulleOns, and other manuipsCripts,' direction of clerical foice, suliervisión of.files, and thetptiw-ning of field work on the basis of office records.
In the field, professional staff members are .commònly engaged ininspection of schools, supervision pf schools, conferpnces with school.tdminiitrators .afici teachers, speaking engagements, school surveys,Attendance at educatiónal conveptions, and teaching in State summerschools.
4.4%.
OFFICE *OW*
Mita.The amount of mail, inciYmin and outgoing, handled byState depattments of education is enormous. Two thousand lettersa day are received and sent out by the examinations and inspectionsdivision in Albany. ple teacher bureau of the 'Pennsylvania StateDepartment has a large volume of mail.' In handling large quanti-ties of- mail a well-organized routine is highly desirable; and inseveral State offices, notably Pennsylvania, elaborate standardpractice procedure as to correspondence has been developed.
Caler8.-L-The writer, in his visits to the five State offices, wasimpressed with the relative east) with which the professional staffofficers may be reached. True, he was on 'somewhat of an officialmission, but he had the opportunity to observe that these men, forthe most part, had;rio inner office, and anyone wits at liberty to walkin. On the whole, so far as the writer could see, the liumber ofcallers was 'not great. There were some exceptions to this generalobservation. The long bed& outside the office of the commissionerof education in Massachusetts was pretty well filled with peoplewaiting to see the commissioner during the whole of three diysspent by the writer in the Boston office. In each of the departmentsvisited the State superintendent was the individtial most sought.The fact that the legisliture was in session in each 'of these five
A daily average of 881 Pieces of mail (Apr. to Sept. 1 1921). See Fiscal Policies, Updegraff and King,9.188. -
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42 STAFF OF STATE DEPARTMENTS OF EDUCATION
States tmdoubtedly increased the number of callers wishing to seethe chief State education officer. The réga1 divisions and the schoolbuildings divisions reCeive a large number of calls from sChooladministrators and directors, as they represent problems not soEasily settled at long range. Every schoolman, especially those inadministrative work, undoubtedly saves up a number of problemsfor the occasional trip he makes to the State capital, and then takeshis troubles to the education department. Other schoolmen (thewriter saw some of this variety) , being in the State capital, feel duty'bound tç, drop in for a round of social calls. Most men, in the fiveState departments visited, seemed quite adept in disposing of thistype of visitor.* The writer had the opportunity of overheatiug anumber of conferences between professional staff officers and school-mene concerning problems back in local districts..; In every ease theattitude of represintatives of the State department was 'sympa-thetic, helpful, mid suggestive rather than dictatorial.
. Writing activities.About half of the 76 men and women inter-viewed by the writer were engaged at the time of the visit in someform of writing.. Monthly and annual reports, baletins of one kindand another, syllabi, and manuals for the help of teachers constitutethe sort of writing most commonly done by professional staff officers.The following list of publications of the New Jersey State Depart-
. ment of Education, in the field of elementary and secondary educa-tion, gives an idea of one type of bulletin prepared for the aid of
k teachers:
4.
NEW JERSEY PUBL/CATIONS
iligh School
Manual for High Schools.Teaching of Plane and Solid.Geometry.Teaching of High-School English.Teaching of Social Studies', including History.Course in Physical Training for Grades IX to XII.Community Civics and Vocational Guidance.Problems in American Demcicracy.
Elementary School
Making of School Programs.Teaching of Elementary Composition and Grammar,Teaching of Reading.Teaching of Spelling.Teaching of Penmanship.Tehchinj of Elemefitary Arithmetic.Teaching of Geography, History, and Civics.Course in Physical Training for Grades I to VI.Course in Physical-Training for Grades VII to. VIII,New Jersey Geography, History, and Civics.Manual for Kindergarten Teachers.Special Days and their 012servanTeaching of Music. '
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THE STAFF AT WORK 48
&twee .6 .1 and 1923 the Massachusetts State Department of
Education Litted4,4 142 bulletins. The Nevi York St4te Depart-went publishes fóur. regular bulletins monthly, two issues of TheBulletin to the SchOls and two special bulletins. .These are inaddition to other regular publications,:as annual reports, handbook.%and similar materia. The fact that the New York officé has itsown printing plant gives it a. tremenddus advantage, .but even NewYork haS difficulty in keeping. up with annual reports. When thewriter was in Albany early in April of 1923, one annual report of theState department .had reepntly come from -the press, a secoile_wasin press, and a third wafi in wanuscript. These reports were forthe years 1920, 192.1, and 1922,' respectively.4. Directiort of clerical force.Duties are,. very-definitely assigned tothe clerical. force in the State education departmenti3 of Massa.cliwra
setts, Connecticut, NOw York, New Jersey, and. Pennsylvania..When once the clerical work is .oriailized its direction beconies amatter of supervision. Since the amount of clerical'help a divisionmay have is dependent upon the amount of approPriation availdble,'post division and bureau dirëctors face the problem of sectmaximum efficiency from a clerical force that would be whoWinadequate if not carefully organized. The proof. for need of mdreclerical force is placed upon thó dirgctor.of the division 4r bureaurequesting it. Once ,organized, the super44sion of the clerical forcein a given division ór bureau may be delegated to a head clerk, sothat the office time of the professional staff memher need be littleocCupied with this problem.
File8.-14.1very bureau and division has its files for the keeping of'records and reports. A principle enunciated by Prof. Harlan Upde-graff is p(4tinent, at this,pointonly those records should be keptwhich are likely to have a future use.2 In one State office the record
.of every teacher *lios setved in that Coll von.wealL since 1837 is.on file. In -another State department there is a room in which, nomatter. where one turns his gaze, he is greeted. with siticks of attendrmace record cards serving whit purpose Heaven alone knows. Asone sees in the offii,es of .State departments of education great roomswhose walls aro hried 'With filing cabinets, the question orises, Howmuch of this vast quAntity of material will serve- any future purpose?
Harriiigton Emerson says of records that they should be "immera,diate, .adequate, and reliable." The' first of these &way concernsfiling. Careful filing makes redgrds immediately available.
Planning- work.The planning for field .work may best bedone .in the office wheie the past facts of the case in hand .are avail'','able. The actual procedure_ preparing for a field visit is aboutair follows:
s Lectures on Educitional Administration, University of Pennsylvania..
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44 STAFF OF STATE DEPARTMENTS OF EDUOATION
A professional staff member is going out to inspect a giv'en Stateinstitution. He will find in the files monthly reports from thatinstitution. He notes that certain items of expenditure are rela-tively laige, or some other detail challenges his attention as bitingworth); of investigation during the contemplated visit. He mayalso find in the files records of previous inspection by other members.of the staff. He notes their criticism, and this 'gives him furtherclues for investigation.
If a public-school system is to be visited, the*divisions or bureausof attendance, raw, buildings; elementary education, secondaryeducation, special -education, educational measurements, and otherscan give him, in tbeir files, a comprehensive picture of that school.system as it has been viewed from time to time by various Membersof the State department of educAtion, from several different 4ng1es.
This practice of planning visits'.on the basis of past records Wndsto inake State supervision systematic'and effective. PlaAing ofthis sort is a legitimate (Ace function which could not very well bedelegated to a clerk, as it demands professional knowledge and expe-rience not ()illy to select the most needy cases hut to map out a suit-able course of action as welL
Examihation activities in New York. New York furnishes a uniquetype of office work because of the regents' system. In 1922, the10 subject specialists attached to the examination and inspectiondivision spent a total of 1683 days in preparing question papersfor the regents' examinations. In addition, they spent a total of4773, days in rating student examinations. Twenty-three per centof the total time of the specialists waa devoted to examination work.'
.1
.
FIELD ACTIVITIES
The work of inspection find supervisimi constitutes the major Owof the field activities of most professional staff officers. While there.is a fundamental difference between inspection and suriervision, yet*the two functions are usually carried 'on simultaneously. Inspectionrequires that certain items be definitely, checked, as, for example,mandat4 *visions the sc. hool code. The're is no reason whythe inspector, at the same time, can not act in a swervisory capacityby encouraging the head of an. institution or school sYstem to availhimself of certain features allowable by permissive legislaticin. Thefollowing form- used ,by specialists of the examinations and inspectionsdivisigns of the New York State Department otEducation illustrateshow inspection and supervision ire actually combined:
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THE UNIVERSITY OF THZ STATE OF NEW YORK,
TIN STATE DIPARTMENT OF IDUCATION ,
Examinations and Inspections Division
Specialist's General Report
No.... _ _ _ Date _ _ _ _ .... ea mb wp di. OS MO SpecialistSchool Principal%1*. Coinpliance with statutes or regulations regarding (a) coinpulsory education,
(b) health and decency, (c) fire drill, (d) fire escapes, (e) flag act, (f)physiolisgy, (g) physical training, (h) maintenance of grade . _ ___ . _ ....
A45
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2. Are the library and apparatus apparently adequate to meet the needs of theschool and the requirements of the university?Are they satisfactorily used?
3. Conference with:(a) teachers; (b) board
Afcönclitidna4. Summary of (a) relating to organifation, clisdipline, and instruction
of- (1) elemètekby department, (2) academic department; (b) relating -
to needs in (1) buildings, (2) grounds
Recommendations-, .
It will be noted in the above repott form that item 1 calls forinspection of the mandatory provisions of the school law, while the:other items either actually call for supervision or elicit informationthat may be made the basis for supervision. -
No agency has had as long and wide experience in the inspectionand supervision of schools as the division of examinations and ins-
spections of the New York Stat Department of Education. Hence..a few glimpses into the internal workings of this division will beboth interesting and profitable. For the school yeir. 1921-22 therewere 10 specialists attached to this division, for the following sub-i
jects(Ancient languages, music, biology, physical science, trainingclasses, drawing, modern languages, English, mathematics, andhistory. These specialists were engaged in three types of inspeee
4ioninspection in their special fields, general inspection, anil specialinspection. Following is a definition of eacl of these types of ins-
spectionInspection in special fields.----It seeks through the preparation of syllabuses
and bulletins to teachers and through examinations to suggest a desirable contentin courses of study. It certifies teachers and schools for special purposes. Itaims through personal visits to suggest methods by which the teaching of Latinor English, or of mathematics, as the case may be, may be improved. It pointsthe way to ideals of accomplishment, it seeks to correct errors of teachingandto stimulate Interest in the field uncpir consideration.
General inapectton.---Th, general inspection donsiders the organisation of thesebool as a whole, the problem of administration -which every prAncipal must
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46 STAPP OP STATE DEPARTMENTS OF EDUCATIONr
,meet, the physical conditions under which the 'work is done, and the adequacyof library and laboratory equipinent for illuminating and reinforcing classroominstruction. It aims above all to make a just appraisal of the character andeffectiveness of the ieaching and to suggest ways in which this may be improved.
Special inspec1iona.-1. Applications for admission to the university or foradvancer. in. grade.
2. Investigations of irregularities in 'examinations and of violations of law- and conduct. .
3. Attendance upon contested school meetings sor a visit necessary to com-pare differences which have arisen in a disorganized' and disrupted choo1.4
- It Will be noted that these definitions embrace much t at ig quitegenerally understood to be "supervision."
Th4 .mtchinery of inspection in this 'division is illustrated by thefollowihg cis(); On September 27, 1022, an inspector reported thatthe program of _academic studies in a certain high school was over-provided. Pupils were allowed to take subjects. on half time, andthey were permitted to take a fourth-yi)ar subject in the secondyear. Only one-half year of American history was offered. Theschool stressed cramiling for the regents' examinátions. Seven ofse*finteen seniors were rushed through the four yearlie course inthree years. The director of the division sent a letter to each of
. th following, the school board, the superintendent,' and the principal,.on October 13, discussing the report of the inspector and statingeducational' reasons for making the chaRges recommended.
No reply was recei.sied to these letters, and a second inspector wassent to the school directly from the field and without knowledge ofthe findings of the first inspector. This second -inspector indepeild-ently made a similar report in November. A second letter wassent out by the. director,December 20, 1922. A. reply was receivedfrom the prinçipal December 27 stating that a change in the presi-deticy of the school board had occaskined the delay. A lettei filial'the ninv president pf the board, January 12, 1923, stated that the"short cut" through the high school had been abolished. Filed withthe reports and correspondence in this ea.e was ii clipping from alocal newspaper den9uncing the State department for its inteiferencewith what. Was considered, locally, advanced practice in secondaiyeducation.
The following report of a visit to a high school in Pennsylvaniaillustrates the practice in another State:
. . _ Report of Inspection
County, Ber47 Placeilkte of visit, December 20, 1922.... or Is qp .. Visitor....... .. _ ...... _
Organisation.----8-4 plan; 9 months; 8-period program of 40-45 minutest ifOr
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each period.
These definitions were taken f the annual report of the division of extuniastion and Inspectionstor 192143r oonsulted by the in menusaript.
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THE STAFF AT WORK 447
Facult Consists of three teachers who instruct a total of 96 pupils. Tvoteachers conduct six recitations per day, and one conducts seven. Norma ly,an additional teacher is employed for part of the time. After January 1 a prin-cipal will be elected, who doubtless will spend a portion of his time in the highschool. The three teachers ndw in the service are college graduates.
Program of studies.Is that recommended by the department with the excel).-tion that no community civics is being taught in the first _year, French I andFrench flare. offered, in addition to three years of lAttin, and ancient history istaught in the second year and medimval and modern history in the third yeár,followed by American history in the fourth year.
Full recommendations were submitted to the facAlty concerning the readjust-ment of the program of studies, together with a list of all other recommendationswhich will follow.
Building.Four rooms are available for the accommodation of these classes.*Two of them are satisfactory rooms on the second floor of the present substantialbuilding. One of the remaining is a laboratory room in the basement, whichin most instances can not be sufficiently heated; and the fourth room is thegymnasium, which is utilized for,six kriodi of the day for recitation purposes.The gymnasium is entirely without blackboard space, without sufficient daylight,and otherwise entirely unsatisfactory for clasroom work. A bond issue hasbeen passed for Ow erection of a new building, which will be started the comingspring. In the meantime it will be necessary for the sehSol to còntinue In theirpresent quarters, even to the sacrifice of efficient work, but with the hope ofrapid progress as soon as -the new building can be provided:
Equipment The librAry is practically nil. There is some equipment for the_teaching of chemistry and physics, but this is too limited in quantity, and owingto the low temperature of the room it is impossible to be used in many days.There Is no equipment whatsoever for the teiching of general seience and biology.
Observatitms.It is reported that the principal of the high school resignedseveral weeks ago, and since that time there has been no head over the school.The crowding of the' remaining three a*achers, and the lack of authority on thepart of any one of them, has made the problem of administration a very difficultone during the present interval.
,Recommendations.It is specially recommended that every effort should bemade by the board- to provide the new building that is planned at the earliestpossible date. Every effort ihould be made to provide the necessary equipmentas indicated before, and to reorganize the work in a manner which will enablethe school to overcome sonic of the defects resulting from the present 'handicaps.
The two report forms below, used in New York, indicate the fieldactivities of the' inspectors attached_ to the attendance division ofthat State.
THE UNIVERSITY OP THE STATE OF .NEW YORK
00'
THE STATE DICiARTELINT OF EDUCATION
Compulsory Attendance Division
Report on Parochial Schools
NoI. P. 0 Çounty.....4urs obasillossameropeo amPity
orOa MI OP WI 9116.411h ..... In OD IND
Townse so we oft op ow at no am am gib Air op sto ow ;II or ow Dist. Novo sr as ova* es el Iv 10.0, aliDISIIIIDe0/14110116#101116
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48 STAFF OF STATE DEPARTMENTS OF EDUCATION,
2.NO OM el 40 elb 01. as PrineipaL____
s. Is clergyman in sympathY with law? If not, why?... . .. .b. la lit) active in having it enforced? If not, why?... ......:::C. Is he active in not having it enforced?... Why?
3. Attendance officer__ . _ ..a. Is he competteet and efficient?b. How often does he visit this school?
4. Have !Records been carefully kept? ..... ......................a. Are records impeded by the attendance officer?, ..... .....b. Are records inspected by local schòol officers?
5. Do teachers of these schools cooperate with public schools?why?
S. Is the relation between the clergyman and local school authorities cordial?If not, state the cause
If not,
7. Spirit- manifestld toward inspector .8. Is teacfiing good or poor?
..
r 7 to14 16
14_ .. ... .......... .
9. Rçgiateredi to Present7
to14
14 to 16_ _ _ .........___._.W. Were absent pupils properly accounted for?11. In *hat way can the department be of assistance io this school?
Give names of pupils absent in violation of law and srxiific remons assigned,if 'any, for such absence. If a parent or guardian has been legally proceededagainst, state the fact,. If not proceeded against when he should have been,ascertain the reason why and state the same. If the attendance officeT hasfailed to do his duty, did fou interview him and what reasons, if any, did he
give for such failure? Did you Interview .members of the board in regard toviolation of law in this school? State results of Interview.
Answers 41 Yee" and "No" to printed questions often fail to give sufficientinformation. When important, give information in detail.
OP a .10 ........ 41. = 41. GO en ..... MD AO sispedor.
THE UNIVERSITY OF TILE STATIC OF NEW YORK
TRIO Milt DlePARTNINT OF IDOVATION
Ompalioty Aftadukos pivi.s*a
Report on inspection of public schoolsNo.
1. P. 0 CountyTown................ .......... a e a e e Dist. No.
2. 4. 46
M41111.
.... Olt 11P
3. 8upibrintendeht or principala. Is he in sympattly with the lawtb. Isle active In its enforcement? 41.
4. President of board. .
.; a. Dots board actively enforce law?5. Attendance officer
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THZ STAFF AT WORK !i97. Number of parcochial schools_ .... Primate schools.......... ... ..
a. Do teachers of these schools 000perate with public achools?........,b. Are their records properly kept?. ..c. Are these records inspected?
8. 'lave commitments been made?, 9. Have any parents been arrested?
49... No op op op ipo Eft on
10. a. Number of children in district last census j'13 toto 18
b. Number of children registered
la Sp op 41.
18 to 14 it Ili so 41.
114 to 16 .visit.? to 14C. Number in actual attendance on day of
114 -16d. Were absentees properly accounted for?
11. Written report below:
No division or bureau in the five States does a more thoroughpiece of inspection than the vocational division. One of the simplestforms used is shawl), below, aid this is but suggestive of the closesupervision given to institutions operated under the Smith-HughseAct.- The New Jersey fOrm is made out in duplicate. One is leftat the school and one is filed at Trenton.
DEPARTMENT OF PUBLIO INSTRUCTIONSTATE OF NEW BRUT
School DateTeacher ClassNumber of pupils on roll: 18tyr2dyr 3d yr.... NV ft .,_ op up ob
Kumber of pupils present: 1st yr_ _ _241 yr 3d yr. _ . _Special... o OD ID OP
What jobs are pupils workingDoes the teacher work on the job with the pupil?How Is the product disposed of?What is the value of products since opening of term?,What steps have been taken to coirelate work-between shop and class?............ op ..... . .......................
81i4DP INSPECTION RECORD
Is equipment adequate?Ili equipment clean?Is equipment safe?Are tools adequate'?What methods-are used to distributeIs shop clean? Orderly?Is there a course of study?.Pupils' progress records?Remarks
411. 41. WO .
What additions are necessary?._. ..... 41114 110
In good condition?If not, state danger pointsIf not, what additions arl necessary
tools?.........Well arranged?..
Job analysis?O. ONE
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50 STAFF OF STATE DEPARTMENTs 64F EDUCATION-
These report forms could be greatly multiplied, but those givenare sufficient to show the naturé of the work of professional staffofficers when engaged in visiting schools.
The following instructions to members of the teacher bureau tits
to how to proceed when visiting a Pennsylvania normal school i; astep in advance of the most exhaustive printed repprt. It has aphilosophy and invites a high degree of initiative on the part bf thevisitor. At the same. time certain definite things are to be observedand.objectively rated.
Instructionsato members e*the teacher bureau in visits to State normalgo schools
Keep careful notes of all inspections as ttle basis for a written report at the,close of your visiteUpon arrrvint it the school, meet the principal and secure an accurate current
program. Arrange the details of your visit at once with the principal of the
Meet and'address the student body in assembly. Meet and confer with thefaculty.
I Plan your visit according to 4he following outline:i. Instruction.
Obsörve and rate all new teachers,Pbserve and rate all questionabre teacher's.. Usò teachers' rating score card:Observe and Tate sample student teaching in the traitft school. Be sure
thatothis sampling is random sampling on An equitable distribution among theb 0,.grOups.,
Note the character of the instructional equipment and supplies, includingte % i books and illustrative 'material both in the normil classes and in the:train-
4 frig school.Animpression .of the student body wilr be tad from three sourcewt
. 1. In the assembly. ./.1 2. In tile seVoiraViclassrooms. .
3. In the halls, in the dining room, and on the campus. .,In order that thig impression may be objective, it should cohsider the fol-
d,lowipg si*bints. each of which should be rated light middle, or low: ,(k) Socialstatus,. (b) maturity,' (c) educatior0d) intelligence, (e) personal spirit,, In pro-
.. *XJ1110f .
. festional sphit.. There should be a constanti
exriression in,the training
4.
school of. the wqz:k ofthe normal classes, avnd all courses in the normal sóhool should be taqtht wail
.a prpfessionkl viewpoint on the part- of the teacher, thi is ? with a A'nstaht
. recognition of the gact thai the students are pirospectiré el8lers. Watch forthis articdlation )3etween the training school ana the general flow of instruction?
rating it high, Middle, or low. .. .. a 4
P 4 0II. Provision for sfudy. .. . . Ps 4 ftAlthk." 0#1'iirovisionln tife'claisroomfi: % , .4.
:.. - a" .
Proviskin in the students' rooms. 4. ; ..,` Provision in the libritry. /
. Time prpvisiott for study.oII Housing. . °
.
at the school. Noté the ciaracter of menus and service.ote the tittOent living conditions. 0
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-IV. Recreation. t eNote the physical opportunities for recreation in space, grounds, and equip-meni.
*-Note the program opportunities for recreation.
THE STAFF AT WORK # 51
Te Specific Problems.First semester, 1921-22. Commercial museum materials.Note.carefully special matters raised by the principal and by members of the
factlty.Yoftr primary purpose is to check up the instructional phase of the institutions.
Do not give too much time/ an examination of the plant and equipment.
Summarizing the work of field inspection and supervision, the'same general prActice obtains in each of the five States. Memberktof a bureau or division visit a school. A conference with. membersof the school board, the superintendent, the principal or teachers, asthe case may be, follows. A report, usually on a printed form, ismade to the State. department. A letter from the head of the bureauor dtvWon, or perhaps from the inspector himself, is writtten in due
,course to follow, up the óriginal missionary w(1,Irk. Subsequentinspections hote tilde glaringvdefects that haviobeen previously re-ported, and if n9 improvtoment is fäund the State department keepshammering awfty until, occurs. "Thus does the State,throAgh the princlpal "phase of its field program, bring backwardschools in line.
Conferences and other field activities.Another important field-activity of professional staff' rciembers is the holding of teachers'conferences. Many significant profesiodal movements are undér-taken by 96.oups of teachers and administrators under the directionof members of the State department. The recent elementary and t.
high schpol manuals of PeInsylvlinik, the junior high-school manualof Massachusetts, and the high-school rlianual,of Connecticút wereall produced by such committees -tinier the supavisiond of- the. second-ary-school experts in the education dtepartments of thosp States.The of education fgr MasstIchusetts told the writerthat he regarded professional work by groups of schoolmen, under thedirection of the State department, as the best avenue for pyttitig
.
over the prográm of the department in the State.Members of g State départment of education are constantly in
demand- for4addresses. They not only talk to school gdtheringi butto civic and busineis organizations as well. Professional staffofficers are expected to be able to sell the program of the State der..partment to the people who will have tc. foot the bill. One assignment'of thif nature. that members of a 4State .departmenteirequently face
the appearanôe Wore a legisltitivercommittee to rustify .the ap:propriation for their division oi bureau. . , * 7 11
AnI9ther acti'vãty that takes the professional staff officer out of the.office is ieashihg n sumnier schools. One-half of the meiibers ofthe Perihsylvania State Dépirtment of 'Education give courses 'in.,t o
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12 STAFF OF STATE DEPARTMENT$ OP EDUCATION
colleges and normal schools during the summer of 1923. Not 'onlyis this a splendid type of service, but it also proyides an opportunityto sell the *ares of the State department to the teachers in attend-ance:
I s. Professional staff offiêeiss of a State department of education
should be leaders of national repute, and, as such are expected toattend various' educatiOnal conventions. The convention of thelocal State teachers' association and the two meetings of the- National,Education Association are regular events bn the calendar of man'yprofessional staff officers. In fact these men frequently occupy placeson the programs of these meetings.
Reporting activities of staff ofrers.---BefOre closing the discussimof the professional staff at work, a further anipli.fica4ion of the re-porting activities will serve to give a more comprehensive picture ofthe general activities of members of State departments, and to em-phasize the extent to which their time is accounted for. On everyside the professional ste officer is hedged with reports. If he is inthe field, he must leave in the office a weekly .schedule of his visits.His report of visits has been touched upon quite fully. He mustmake out an itemized expense account, in accordance with defittiteregulations. In New York, maximum living expenses are get for the
44 various cities of the State. Then, in addition to the reports ofvisits, a monthly report is required showing how his. time has beenspent. New Jersey .mven requires an accounting by hours for eachday of the montb:
Samples of the weekly schedule cards on which to reportexpense accounts may be secured from. offices upon request.
. The New York expense account form ih* jziteresting, as itshows how closely this matter may be checked.'..-..
Activitiei as- reflected by monthly report8.The: following monthlyreports give further intimate glimpies into thé activiiieb, both officeand field, .of °members of State departments tse *education. Thesea,re actual Opiei from the fifes' of the States visited by the writer.
MaasachuseitsMontlay ReportBureau of Seconcktry Educatioi,April, 1,922
CONTENTS:1. Junior-Senior High Schbol Conference. Conferenee of principals, 3 days.
Keos, Calvin, Kingsley on program.21 Senior High School Manual. Drafted by committee of 11 principals and
aupbrvisor of secondary education.. 3. Junior. High School Circular. Pqpular and condensed form of junior high
school manual for school committees and citizeps.4. High 'School Buildings. Conferred with 9 superintendents on new Iliet
School (Junior and Senior) Buildings. t**
5. $peaking lingagene4p. .81x. .
13. Vfails1 Two, as /result of mite visit a confprence with superintendent andjrhool committe, 14anpie4. on `r,t46..p046 of the, aehopl." Principal has n'ktaimed of. makfng the 1110 w;hool' meet the needs of all the children."
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Month.: February.
Feb 1Feb 2Feb 3Feb 5Feb 6Feb 7Feb 8Feb 9Feb. 10Feb. 12Feb. 13Feb. 14Feb. 15Feb 16Feb. 17Feb. 19Feb. 20Feb. 21Feb. 22Feb. 23Feb. 24Feb. 25Feb. 26Feb. 27Feb. 28
..Date
!th BTAPP AT %MIX
STATE or NEW JERSEYDIPAITIEINT OF PUBLIC INSTRUCTION
Division of Elementary Education
Monthly Work Report
5 8,
Year: 1918
Place
Bordentown_StirlingNewarkRutherfordEnglewoodCamdenTrenton
doNew YorkMorris PlainsSomervilleFreeholdW N YCamdenNewarkTrentonHackensackLong BranchTrenton
Purpose
Inspection_do 4
Conference.-Inspection__
dodo
OfficeConference. -
doDedication....Inspection
dodo_ _ .4...
Conference..._dodo
Inspection.. _
do. Office
Woodbridge______ Conference_ _ ._1 Trenton i Office u: Cleveland i N. E. A a
do dodo dodo do
!
Hourstravel
242334
1
2351
443
3334
flours eftime, actual
h reportfiled?
7 Yes.Yes.
6 Yes.6 Yes.8 Yes.
. 8 Yet.8 Y.9 Yes.6 Yes.3 Yes.8 Yes.
10 Yes.8 Yes.7 Yes.7 Yes.9742
Full day.Full day.Full 'day.Full day.
Yes.Yes.Yes.Yes.Yes.Yes.
. ......
Distribution of time between office and field.The equitable -distri-bution of the time of staff members between the office and the fieldis,a constant problem for departmnts of education. How this dis-tribution was actually made by the 10 specialists attachit4 to theNew York division óf examinations and inspections for the year1021-22 is shown in Table 31.
TABLE 31. Summary of inspectional activities, school year 1921-2t, division ofexaminations and inspections, New Y ork
E.
Name and subject
0.1111I
Ancient languages, Doctor Arms.Music, Mr. Carterlitany, Mr. ClementPhyecal science, Doctor CobbTraining classes, Mr. Johnson
KDrawing, Miss napplanguages,Modern Doctor Price
&Wish, Mr. RichardsMathematics, Mr. Seymour .?
Biitory, Mr. Smith it., al
Totals
ersoramil
6318744205377
1167471
107
72
7739
222180
24
243
715142082
812 822 1 na
kwal
vaia
1
104. 28%25 264 2256 1289 1845 640 3060 2
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1317
56 2530 1750 15
4 «70 221654
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It is evident that the professional staff officer is an exceedinglyÌ busy individual. His time is filled to the brim with the activities ofhis position. He is on the job more continuously than any othereducation officer, as in most instance$ a two weeks' vacation is theonly break in the year's work. His compensation for this strenuousprogram is that he is not harassed by parentsand the general public,as are classroom teachers and public-school administrators. Theactiirities of the staff officer are based on a well-organized routine,and hip effectiveness depends upon how generously he is providedwith 'expense allowance for field rwork.
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SUMMARY Ate#4:CONCLUSIONS1 .
This study of the professional stAff of State Departments of Educa-tion in Massachusetts," Connecticut, New. York, New Jersey, andPennsylvania is ,intended to supplement the several monographsdealing with the State board of education and the State superintend-ent -of schdols. It is confined to ti selectedwoup of States, each ina relatively high stage of development as regards orga?ilzation andfunctional activity, that an intensive study might be mAde by per,-sonal investigation at the five State capitals.
The setting for the study is a survey of the rise of the professionalstaff since 1900. This survey is presented in Chapter II, and revet4sthat the general practice of assigning specific tasks to specialists hascome since 1910, and, for the most part, since 1915. The dévelop-Tent of the staff has not been uniform in the States, and in a numberof departments the praictice is still to assign a group of importantfunctions to one .officer. While the degree of specialization varies,it is safe to conclude that the principle of functional specialization,by professional staff offieers, is generally accepted and actuallypracticed by State departments of edugation.
The findings in the main body of -the study hold only for thé grotipof five States investigated. While this is trim, the fact that theprofe§sional staff in these States' is engaged in virtually every activityto be found in departments of education in the country at largemakes it quite likely that the picture of the prOfeAsional staff officerpresented in this summary is typical for the 48 States.' The variedpractice of the five- States seems to strengthen the validity of this
, .
assumption. *7
THE PROFESSIONAL STAFF OFFICER
Appointmtnt.---In Massachusetts, Connectic9t, and New Jersey,the commissiimer recommends the appointments of professional stagofficers and the State board of edwation confirms diem. In NewYork the same method applies to the assistant commissioners. ThiopraCtice is in accord with the recommendations of 4Cubberley andClaxton.' In New York, professional staff officers below the assist-ant commissioner are appointed in accordance with thé regulationsof the civil service commission. In Pennsylvania the State super*inteildent nominates ko the governor .and the executive board, whichis composed of severaiNdepartment heads of the Sthts government.
I Cubberley, State and Cotinty Educational Reorganisation, p. 26. Claxton, But 16, OA U. a. DU. ofIduc., p. 6. i 1
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This practice is bad, in that it is an unnecessary check upon theindependence of the department of education.
Qualifrations.Qualifications are not definitely stated, except inNew York. In this State the rules of the civil service commissionrequire that qualifications be specified on the announcement of theexamination for a given position. Claxton says that professional staffofficers "should be chosen from the country at large on the basis offitness." 3 As far as Massachusetts, Connecticut, New York, NewJersey, and Pennsylvania are concerned, they are chosen on the basisof fitness, but there is little disposition to go outside of the State.
Term.The term' of the. professional staff officer, except in NewYork, is indefinite and is dependent upon tile pleasure of theappointive power. In New York, becauseof the protection of civilservice, the tenure is virtually permanent.
Age.The median age at which 117 profesOonal officers enteredthe service of State departments of education was 36. The range,by States, was from 32.5 in Connecticut to 42.5 in New Jersey.The median present age of 122 professional staff officers in 1923 was44.9. The range, by States, was from .38.75- in Massachusetts to52.5 in New York. The margin between present age and eniranceage is 18years in New York, and for the other States varies from 5.5years in Massachusetts, to 6.9 yeará in Connecticut.3
Cary says, 119 to the training of professional staff officers, " Theyshould certainly be equal in every eisential respect to the men whoserve as professors of edttcation in our *best universitieh." He fur-tiler contends that from one-fourth to one-third of the professionalmembers in,a State departmea should hold tlie Ph. D. in Educamtio9..4 New Jersey most nearly approaches this ideal, with twodoctors of philosophy in a total of nine professional officers. It isinteresting to note that, in the group of five States, Connecticutalone has a professional Aaff composed wholly of cpllege graduates.
Position held prior to enterilfg department of education.Of the 77reporting on the position held before entering the department ofeducation, 58 per cent were engaged in supervisory positions and
-42 per cent in teaching positions. Those drawn from .supervisoryweitions classify its follows: City or town supetintendents of schools,22b, supervising principals, 14; county superintendents, 9. Of thosedrawn from teaching positions, 6 were college professors and 25taught in institutions below collegiate grade. Massachusetts is theonly State to recruit more than half of its professional qtaff directlyfrom the teaching ranks.' The great majority of professional posigong in State education daces =and experience in educational
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gdminigtration and supervision. The apprenticeship lould be servedWore entering the State department.
Tenure.Information was secured on 56 cases of completed tenure.The median term was 5.5 years. The range, by States, was from 4.5years in Collnectieut to 7.1 years in New York.
The median for the term in present positions for 69 cases in 1923was 4.g years. The range, by States, was from 2.2 -years in NewJersey to 13.5 years in New York.
Professional officers are frequently promoted, ivithin the depth-ment, so that the term in present position does not indicate thenumber of years spent in the State department. The median oftotal service for 131 cases is 5.2 years. The range, by States, fortotal service is from 3.75 years in New Jersey to 15.7 years in NeviYork.6
The tenure in professidnal positions of State education departs,-
ments is Ftlatively good as compared with other administrativepositions in education such as city school superintendencies and col-
lege presidencies.ai4ries. The median professional salary paid by the five States
in 1928, and based on the whole number of professional employes(256) for that year, was $3,812. The median salary for each St "tiewas: New Jersey, $4,500; Pennsylvania, $4,203, Connecticut, $3,750;Massachusetts, $3,071, New York, 12,859:7 Salaries for the sametype of position vary from State to State, but this is to be expectedin the very nature of things. The most striking variation is in thesalaries paid subject specialists in New Yoik and the subject directorsin Pennsylvania.8
Clerical salaries are much 1 than profesaional salaries. ThegrouP medilin for the total of 448 clerical employees in 1923 was$993. The median clerical salary, by Stake, wits: Connecticut,$4360, New Jersey, $1,275; Pewlsylvania, $1,100; New York., .$950;Massachusetts, 169359
What should professio ; salaries in e State educatipn o."¡Ace be,Cary says the minim or womeii' should be° $2,500. and the mini-mum for men $3,000. The maximum "should be sufficiently high tosecure men of great,entbusiasm and energy, with the best moderntraining, and with splendid social qualities." " Updegrar, writingOn the salaries paid the professional staff in Pennsylvania, states,"the salaries are to higher than ¡a nedessary to secure and hold in0and women of the high qualifications that such positioup,amandorder tò promote the highest effkiency in the schools of the State.",1.1
0 See Tables 24, 28, 27, pp. 31, 37,38, respectively.See Table U.See Table 29, for the variat4oni.See Table 30.Elehtiol and Society, vol. tit p. 342.Fiscal Policies, 1). 179. .
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THE STAFF AT WORK-OFFICE AND FIELD ACTIVITIES 12
The principal tasks that engage the time of the professional staffmember in the office are: Correspondence, 143ception of callers,writing activities, supervision of files, and planning for field work.
*The regents' system in New York adds examlation work to the list'of officè activities fokcertain of the specialists in the State.
In addition to the primary function of supervising and inspectingschools, field duties include holding conferences, making addresses,attending educational conventions, and teaching in summer schools."
The distribution of a staff -member's time between office and fieldwork is a problem that State superiiitendents must meet. We haveseen that 10 specialists. in Rew York, avoWedly field men, .spent 52per cent of their time in ,the field. Is that sufficient? On this score,one educational expert says, field workers should spend at least three.fourths of their time out in the State while the schools are in session."
CONCLUSION
The basic problem facing State departments of education is effectiveorganization of thefprofessional staff for field service. State depart-ments appear quite equal to the task of absorbing increased detailarising principally frotn greater responsibility as State subsidies foreducatión become larger. In the clamor for larger appropriationssight must not be lost of the need for more effective field work. TheState has a duty to itself and tò the taxpayer to assist local districtsin the wise expenditure of public money.
Each State has its own peculiar needs. At the smile time, the NewYork plan for field service, with appropriate modifications, should beapplicable in any situation.- A staff, to render the .mosteffective service at reasonable cost, should be 'composed of experts,with böth specific and general training. A vocational specialist,modern language specialist, an attendance specialist, or .tor'hat not,should be able to size up a general school situation as well as renderassistance in the field of his specialty. Such a staff can cover moreterritoiey, both geographic'ally and professionally, than one com-prised wholly of specialists in specific fields or of general specialists.
No problem is more vital to threqualization of educationál oppor-tunity in the American States than the work-of the professional staffofficer. No agency less than the State can achieve this equalization, -
and the greatest single factor in a program of equalization is thepersonal service of the State performed by the members of theprofessidnil 'staff of the departmént of education. ,-
u Only the Aefest summery will be given to the" staff at work." The reader is referred to ChapterV. in its entirety for this subject.
11 flee Updegraft and King, Fiscal Policies, pp. 186-198, for detailed stattment of field activities of Pennsylvania State Department.
pary: School and Society, Varli, p.341,
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BIBLIOGRAPHY
PRIMARY SOURCES
The following is a list of the publications of the five State depart-ments collected by the author during his investigation:
Connecticut
course (-)f study in civics. Louise Schmahl. 1917.
manuil of Olifsicat education for elementary grades, 1922.Attendance igents; a study of their activities, 1919.Connecticut hi@tory stories. Daniel Howard. 1920.
Connecticut schools. (Official monthly publication of State Board of Education.)Vols. 4 and 5. -1922 and 1923.
Directions fcir testing hearing, 1922.Education directory. School document no. 1, 19236.
Educational inquiry. Glastonbury,-1916.Echicational inquiry. New Hartford, 1916.&Ideational inquiry. Newtown, 1915-16.Eyesight test, 1922.High-sehool directory, 1922-23.Laws relating to schools. School document no. 3, 1920.Organization and administration of high schools in the 'Rite of Connecticut, 1921.-Plans for progress for use in elementary schools, 1920.Professional library; books available for teachers, 1919.Professional reading list, 1916.Report of Connecticut Boami of Education, 1920.Rules and regulations concerning State teachers' certific.ates, 1922.
School and dommunity field days, 1923.Spring activities in relation to physical education and health, 1922.Syllabus in elementary agriculturé; 1922.The children of the-State, are they where they should be? 1919;
Trade and vocational education. Vocational bulletin 1, 1923.
Massachusetts
Administration of Independent Day household arts Schools. Bulletin no. 9, 1918.
'Administration 'of State-aided practical art classes for women, Bulletin no. 7,
1922.Administrative forms used in the establishment and administration of Staten,
aided vocational and continuation schools. Bulletin no. 11, 1921.
Annual report of Board of Free Public Library Commissioners for the year end-ing November 30, 1921.
Annual rerort of the Division of the Blind for the year ending November 30, 1921.
Annual report of the Division of Immigration and Americanization for yearendiag Novembel 30, 1921.
Annual report of Teachers' Retirement Board for the year ending December 31,
1921.59
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Budget recommendations to the General Pourt of Massachusetts, January 19,1923.
Commission service in MassachusiAts. Board of Free Library Commissioners,1921.
A description of the work of the library commission.Courses offered for oorrespondence and class instruction. Division of University
Extension, 1923. 0
Educational directory, 192-23.Eighty4ourth annual report of Department of Education, 1916-20.Eighty-fifth annual réport of Department of Education, 1920-21.General laws relating to tiduction, 1921.Information relating to the establishment and administration of county agri-
oultifral schools find agriáultural departments. Bulletin no. 23, 1916. .
Information relating to the establishment and administration of State-aided- vocational schools. Bulletin no. 22, 1916.
Manual for junior high schools, 1923.Plans of Massachusetts for year .1919-20. Board
Bulletin no. 4, 1919.Report of. the Commission on Immigration-The problem of (nun igration in
Massachusetts, 1914.Seventh annual report of Division of University Extension, March, 1922.Sixth annual report of Division of University Extension, March, 1921.Statistics of the public schools for the year 1921-22. Boston, 1923.Tbe teachers' retirement system. Teachers' Retirement Board. Bulletin
3, 1922.
1
for Vocational Education.
New Jersey 1
no.
Annual report of vocational education, 1920.Directory of vocational Bch' ols, 1920-21.Education bulletin. (Offici 1 monthly publication of department.) N'ols. 8, 9.
-10. 1921, 1922, 1923.New Jersey school directory, 4922-23.New Jersey school repott, 192ERules boncerning teachers' certificates, 1920.Sehool building survey, 1922.School laws, 1921.Survey of acoounting and business sistems of the school dIstricts in New Jemmy,
November, 1921.
New York
A brief account of the organization of the university and the functions of itsseveral divisions, January,. 1924.
Bulletin to the schools. (Official semimonthly publication of the dewitment.).Vots. 9 and 10. 1922 and 1923.
Child welfare and compulsory education bureaus. Census. Report,:1918.Pompulsory education and child labor laws. Bulletin 728, 1921. /
OW test Mars withconotiations, deplittasent rulings, and legal forms for use Ischia] autboritalsand employers of minors.
Court* fot voeatio4a1 'teachers. Bummer tieRsion. Oswego, 1923.Education la1r, 1922.Educational itneasurements,.a selected bibiiigraphy. 3. C. MoTrh3on. 1921.Orgitntmt1dñ and Institixtions, October, 1022. , (New York education direct00,)
See Rpi ai and 96 for Hit of furtlu)r imblications.of N J. 8t!kte Dept. of.Educ.
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program of dedication exercises, State education building, 1012. .
Contains brief history of the univenity, togethei with a brief description of the work ants epretakdivisions. 6
.01
Regents rules, 1919.Regents rules, changes in. (Published in leaflet form from 1919 to January,
1923.)Regulations relating tt.) teachers' certificates, November, 1922,Report of Division of Vocational and Extension Education -for the year ending
July 31, 1921. 1923.Report on higher education for school year ending July 31, 1919. 1922.-
rt on secondary education for the echoed year ending July 31, 1919. 1922.Rules and regulations regarding tbe preparation and audit of accounts payable
from State funds (rules concerning traveling expenses). January, 1921.Spelling'in New York rural schools. J. C. Morrisort. -1972.Syllabus in history, 1922.-The University of the State of New 'York, the State Department cif Education.
Circular of information for distribution at the Panama-Pacific InternationalExposition, 1915. .
The University of the State of New Ycirk, the State Department of Education.Descriptive circular, 1916.
Pennaylvania
A digest of the laws controlling school attendance and employment of minors,1922.
Arbor Day and Bird Day, 1923.Artification of teachers, 1922.Classifi «ou of high echo*, 1921-22.Count siudy in agriculture, 1923.Cou *of study in commercial educatfon, 1923.Courses of study for continuation schools, 1023.Course of study in foreign languages, 1923.Course of study in geography, 1923.Course oi study in mathematics, 1923.0ourse 'of study in music, 1923.Couise of study in social scienoes, 1923..RospitalAnteisti year. Bulletin no. 15, ianuary, 19221Library s.nual for high schools, 1922.Manual and syllabuses for elementary schools, 1922.Manual for' high schools, 1922.Medical education and licensure. Bulletin no. 12, January, 1922.Medical education and lioensure; driglesi therapy, physio-therapy, chiropody.
Bulletin no. 14, January, 1922.Medical education and lieensure, midwiferY. Bulletin no. 16; January, 1923.Ottr army of illiterates. Thomas E. Finegan. 1921.Pari-time cooperative industrial education, 1924. (Mimeographed.)Pennsylvania School Journal. Vols. 49-51 {1921-1923).
Legally tbe official organ of the Department of Public) Instruction, but published by State Educe.tional Association.
Preproftssional credentials, November, 1922.Proceedings of Second Educational Congress, 1920.Public school directory, 1922-23.teport of Conference on Yoremanship training, 1922. (Mimeographed.)
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62 STAFF OF STATE DEPARTMENtS OF EDUCATION..
Report of the superintendent of public instruction, 1919.School law, 1921.Digest of 1923 school legislation. (Mimeographed.)Vocational agricult!.tral education, 1923. (Mimeographed.)
SECONDARY SOURCES
Alexander, Carter. The Wisconsin State. Departnient of Public Instructionunder Cary. School and Society, 14: 529-44. .
Babbitt, J. F. Lay versus expert control. School Review, 22: 52-54, 1914.Butlir, Nicholas Murray." Problems of educational administration. Educa-
tional Review, 32: 515-24.Cary, Charles P. How a State department may stimulate lock initiative. In
National Education Association. Proceedings and addresses, 1918, p.506. (Discuoion by G. D. Strayer.)
Our educational advandS in the Stato. In National Education Associa.tion. Proceedings and addresies, 1911, p. 210-15.
The making of a State department of public instruction. School andSociety, 11: 335-43, 1920. .
Clakton, P. P. Organization 'of State departments of educati4. IT. S.Bureau of Education. Bulletin, 1920, no. 46. (Introduction.)
Connbcticut -Education Commission Report. in Connecticut State BoardEducation. Repok, 1907-9, p. 50-63.
Cubberley, Ellwood P. Changing conceptions of educatión. Tshiw York, 1900.Desirable reorganizations in Aiiierican education. School and Society1: 07-402, 1915.State and county educational reorganization.. New York, 1914.
Werner; Hugo. Factory organization and administration. STew York, 1910.Chapter IV dismiss staff and departmental organization.
Draper, Andrew S. The limits of State control in education. o ucationjalReview, 1: 26-32, 1891.
Duncan, John C. The principles of industrial management. New Y. k, 1911.chapter 13 diastases types of organization.
amEll
Engelhardt, Fred. The organization of the Pennsylvania Department of MkInstruction. American School Board Journal, 66: 48, April, 1923.
Irdrchild, Edward T. The province of State boards and State superintendentsin -the administration of public education. /n National FAucationtion. Proceedings and addresses, 1909, p. 423-28.
Finegan, Thomas, E. Functions of the State in local .administratiott. Nit-tional Education Association. Proceedings and addresses, 1910, p. 348-61.
The best plan for Pennsylvania. Ninth Annual Schoolmen's Week,University, of Pennsylvanja. Proceedings, 1922.----a The State program in education. School and Society, 14: 61-65, 1921.--- Uniformity of f,ktandards in school administration. /n Nattonal FAuca-tion Association.. Proceedings and addresses, 1913, p. 122-31.
Gilman, D. C. Education in America, 1770-1876. North American Re/view,122: 1914628, 1876.
Hart, J. K. Pecentralization in education. Survey, 47: 53-.54.Higbee, E. E. How a State superintendent ei est advance populaf educition.
In National Education Association., Proc ings and addresses, 1804.Rollan4, Bernard. Central and local govern nt. Edinburgh Revieliv, 237:
41-58.Good on England's experience with extreme centralization In education.
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SIBLIOGRAPHY 68
Humphreys, Willard C. Government and education in the United States.Oolumb la College, Ph. D. tbepls.
Illinois Education Commission.. Report. Springfield, Ill:, The Illinois StateJournal Co., State printers, 1909.
Jo-yner, J. Y. How a State department may stimulate local initiative. /aNational Education Association. Proceedinp and addresses, 1918, p. 507.
Discussion by O. D. Strayer.
Kalbach, L. A., and Neal, A. O. Organization of State departments of educe,-tion. U. S. Bureau of Education. Bulletin, 1920, no. O.
Kirk, John R. The proirince of State educational institutions ln the admin-istration of public education. In National Education Association. Pro-ceedings and addresses, p. 433-34.
Discussion by W. O. Thompson.Macnowell, Theodor* L. State versus local control of eltimentary education.
U. S. Bureau of Education. Bulletin, 1915, no. 22.Miller Frank W. Priblems that confront the State suPerintendent in Us relatkin
to 'rural schools. fn National Education Asiociation. Proceedings andachiresse,, 1914, p. 251-53.
Monohan, A. C. Organization of State departments of education. U. 8.Bureau oi Education. Bulletin, 1915, no. 5.
------ and Cook, Katherine M. Report of an inquiry into the administrationand support of the Colorado school system. U. S. Bureau of Education.Bulletin, 1917, no. 5.
Educationil survey of Wyoming. U. S. Bureau of Education. Bulletin,1916, do. 29.
Part 4 contains a good discussion ot organization or State departments.Moyer, James A. University extension id Massachusetts.
National Education Association, 11: 405-07. .
Reeder, Ward- G. Selecting the òhlef State school officiO.Board Journal, 66: 37-39.
The qualitications of the chief State school official.Board Journal, 67: 39---40.
------ The salary of the chid State sehool official. Americin School BoardJournal, 87: 41-42, 138.
Seerley, Homer H. The province of the common people in the administrationof public educittion. In National Education Association. Proceedings andaddresses, 1909, p. 415-21.
anon, Edward O. The State department and educational statesmanship.ba National Education Association. Proceedings and addresses, 1916, p.511-15.
Smith, Payson. Limitations of State control in education. /n National Edu-cation Association. Proceedings and addresses, 1918, p. 490-93.
Strayer, G. D. How a State department may stimulate local initiative andincrease /n National Education Association. -Proceedings andaddrestes, 1918, p. 501-04:
-1"-u-- and Engelhardt, N. L. The classroom teach rkSchools. New York, 1920.
Sutton, William S. Discussion of by Homerof the commori people in the admi ration of public education, In NationalEducation Association. Proceedings and addresses, 1909, p. 421-23.
Thompson, w. O. The province of Mite educational iriititutions in the ad-. minIstration of public ion. In Nitional Education Association..
Procispedingá and addresses p. 43048.
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Weber, A..W. State control of instruction: A study of ceOralization to publiceducation. Cleveland, Qb1o, 1914. ..
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