Book -ft' 6 - If/O REPORT OP THE NEW YORK COMMISSION ON TEACHERS' SALARIES 1910 ■ •J REPORT TO THE / 3 t Board of Estimate and Apportionment OF THE CITY OF NEW YORK BY THE Commission on Teachers' Salaries OCTOBER 17, 1910 :\- »** MEMBERS OF THE COMMISSION: Mr. Clinton L. Rossiter, Chairman Dr. Leonard P. Ayres Dr. Lee K. Frankel Mr. James M. Gifford Mrs. Frank H. Cothren, Secretary M. B. Brown Printing & Binding Co., 49 to 57 Park Place, N. Y. Resolution Creating the Commission On Teachees' Salaries. Introduced in the Board of Estimate and Appor- tionment of New York City by the President of the Board of Aldermen. Whereas, From time to time there have been submitted to this Board recommendations and re- quests for increase, equalization or adjustment of salaries of the teachers in the public schools of The City of New York, and Whereas ; This matter has for several years been under the consideration of the Legislature, and Whereas, The Legislature has at several recent sessions passed measures which, had they become law on the approval of the Mayor of The City of New York and the Governor of the State, would have compelled the Board of Education to adopt the views of the Legislature in revising the sched- ules of salaries paid to the teachers of The City of New York, and further, would have compelled this Board to make financial provision therefor, and Whereas, The Mayor's Commission appointed to consider this matter has recently reported, after several months of inquiry, its inability to reach conclusions by reason of insufficient time to secure adequate information and has suggested a further study of this matter, and Whereas,, Any revision or adjustment by means of equalization or increase in the annual rates of the salary schedules of the teachers of The City of New York will, before taking effect, come before this Board for its consideration in the prep- aration of the annual Budget, Now, Therefore, be it Resolved, That this Board do and it does hereby establish a commission with power to investigate the justice, economy and adequacy of the present and proposed schedules of salaries for the pay- ment of teachers of the Department of Educa- tion, the said commission to consist of five mem- bers; two to be appointed by the Mayor, two by the Comptroller, and one by the President of the Board of Aldermen, all to be appointed on or before January 21, 1910, and all to serve without compensation, and be it further Resolved, That this Commission, when ap- pointed, be directed to report to this Board on or before May 1, 1910, recommendations with re- spect to any revision or adjustment of the sched- ules of salaries for the payment of teachers of the Department of Education which it may deem proper, desirable and equitable. (Passed January 14, 1910,) CONTENTS. Introductory Statement 7 Part I. — Conditions. Chapter I. — Day Elementary Schools 13 Teaching Force in the Day Schools 13 Distribution and Salaries of Teachers .... IT Distribution and Salaries of Principals ... 24 Chapter II. — High, Training, Model and Evening Schools .- 32 Men and Women Teachers in High Schools 32 Training and Model Schools 36 Evening Schools 37 Part II. — Studies and Considerations. Chapter III. — Undesirable Multiplicity of Salary Schedules 43 Chapter IV. — Concerning Salary Increases. 46 Salaries in Other Cities Compared with Those in New York 46 Upward Trend of Salaries in Other Large Cities 51 The Increase in the Cost of Living 55 Is the Beginning Wage of the New York Teacher a Living Wage 60 Salary Increases on the Basis of Efficiency. 63 The Bonus System 65 Clerks or Additional Teachers 67 5 Chapter V. — Interrelation of Sex, Work and Pay 70 Sex Comparisons 70 Supply and Demand 81 Chapter VI. — Salary for Position 91 The Need for Men Teachers 91 " Equal Pay " Systems in Other Large Cities 98 " Equal Pay for Equal Work " 105 Part III. — Conclusions, Schedules, Cost Computations and Recommendations. Chapter VII. — Conclusions 115 Chapter VIII. — Schedules; Present and Proposed 120 Chapter IX. — Estimated Cost 139 Chapter X. — Recommendations . 143 Introductory Statement. The members of the Commission were appointed as follows: Mr. Clinton L. Rossiter, Dr. Leonard P. Ayres, Dr. Lee K. Frankel, Mr. James M. Gifford and Mrs. Frank H. Cothren. The Commission organized on the 4th day of February, 1910, by electing Mr. Rossiter, Chair- man, and Mrs. Cothren, Secretary. After hold- ing several meetings, the Commission, on April 29, 1910, submitted to the Board of Estimate and Apportionment a preliminary report stating that on account of the magnitude and importance of the problems under consideration, it was impos- sible to submit a final report by the first day of May and requesting an extension of time. This extension of time was granted. The Commission has held nineteen meetings and a public hearing at which eighteen speakers rep- resenting different teachers' organizations, the Board of Education and the Bureau of Municipal Research, were heard. It has held conferences with a committee from the Board of Education, a committee from the High School Principals' As- sociation and with numerous members of the teach- ing force. Careful consideration has been given to printed matter which has been submitted from 7 time to time by eighteen different teachers' organ- izations and also to numerous letters from teach- ers, citizens and different clubs and organizations of New York City. The Commission has gained valuable informa- tion from all of these sources, and in addition has visited many of the public schools, has made an exhaustive examination of the reports of the City Superintendent of Schools for the last ten years and of the present and proposed schedules of the Board of Education. The salary schedules of the fifty largest cities in the United States have been studied, letters of inquiry have been sent to 200 of the leading educators of the country, and a number of important investigations in statistics and economies have been carried on. In all of its work the Commission has had the assistance of a statistician furnished by the Board of Estimate and Apportionment. The instructions embodied in the resolution creating the Commission called for " an investiga- tion of the justice, economy and adequacy of the present and proposed schedules of salaries." These instructions necessitated an inquiry into many fundamental and complex problems, and the Com- mission has throughout its investigation endeav- ored to examine and exhaust if possible all exist- ing material relating in any way to the subject under consideration. In the report herewith sub- 8 mitted, the aim has been to secure better conditions for the school child rather than economy of the City's resources, and greater efficiency of the teacher rather than increase in salary. PART I. CONDITIONS. CHAPTER I.— DAY ELEMENTARY SCHOOLS. The Teaching Force in the Day Schools of New York City. The teaching force in the day schools of New York City is composed of over 17,000 teachers, of whom 87 per cent, are women and only 13 per cent. men. In other words, there are seven women to every man. There are two great classes of schools, the elementary schools and secondary schools, which latter include high and training schools. With respect to the size of the teaching force, the elementary schools are much the more important; they include in their teaching staff eleven-twelfths of the entire teaching body. The following table, in two parts, shows how the teach- ers are distributed among the several classes of schools. 13 Teachers of Day Schools by Sexes in New York According to Budget of 1910. Part I., Reg- ular Elementary Teachers. Per Cent. Grade. Men. Women. Total. Women. Kindergarten 739 739 100 1 1,861 1,861 100 2 1,812 1,812 100 3 2 1,799 1,801 100 4 15 1,741 1,756 99 5 86 1,582 1,668 94 6 342 1,176 1,518 77 7 264 987 1,251 79 8 299 661 960 69 Total Regular E 1 e m e n tary Teachers 1,008 12,358 13,366 92 14 Teachers of Day Schools by Sexes in New York According to Budget of 1910. Part II., All Other Teachers. Per Cent. Men. Women. Total Women. Elementary Prin- cipals 225 216 441 49 Elementary As- sistant Princi- pals 19 380 399 95 Elementary Spe- cial Teachers, etc 195 1,224 1,419 86 High School Principals and Teachers 581 647 1,228 53 Training School Principals and Teachers 21 144 165 87 Parental and Truant School Principals and Teachers 6 6 12 50 Total 1,047 2,617 3,664 ~71 Total Regular E 1 e m e n tary Brought For- ward from Part 1 1,008 12,358 13,366 92 Grand Total 2,055 14,975 17,030 87 15 Referring first to Part I., it will be noted that in the lower grades of the elementary schools all of the teachers are women. Not until we reach the sixth grade do we find any considerable number of men, and even in the sixth, seventh and eighth grades the men are far outnumbered by the women. Part II. of the table shows that among the prin- cipals of elementary schools, the men and women are about equal in number. The assistants to principals are predominantly women, as are the special teachers in the elementary schools and the teachers of the training schools. In the teaching force of the high schools and the parental and truant schools, the men and women are found in substantially equal numbers. To state the matter in other words, among the seven grades of posi- tion considered, women greatly outnumber men in four grades, while the men and women are present in substantially equal numbers in the remaining three grades. Conditions may be summarized as follows : Women Predominating. Regular Elementary Teachers. Assistants to Principals. Special Teachers in Elementary Schools. Principals and Teachers in Training Schools. 16 Men and Women Substantially Equal. Principals, Elementary Schools. Principals and Teachers in High Schools. Principals and Teachers in Parental and Truant Schools. Distribution and Salaries of Teachers. There are nearly fourteen thousand separate class rooms in the elementary schools of New- York, each containing pupils of one grade and in charge of either a man or a woman teacher. This refers to regular classes only. Some of these classes are made up of boys, some of girls, and some contain both boys and girls. Roughly speak- ing, about one-third are made up of boys exclu- sively, something more than one-third are com- posed of girls exclusively, and less than one-third are mixed classes containing both boys and girls. In general the men teachers in the elementary schools teach the boys' classes, but this is by no means an invariable rule. Much less is it true that all of the boys' classes even in the highest grades are taught by men teachers. The distribution of the teachers of the two sexes among boys', girls' and mixed classes is shown in the following table : 17 5* 8 ■cs> r^ 53 ^3 feq $ 3 o t-3 3 s OS r-f *\ 3> -3 Co S3 ^3 3 3 3 3 O •K4 3> r ^ ^ 2 Pi i— i ■ i—i o cm o pq -fl fl ^§ £ g £ fl ■H CD (M O (N CO O CO «5 CO b- HNrtM)>CO(NNeO COb.5>COCOCO«5^(M i> t3H t? CO <"3< rH -3Hi>- CO NCONOiCO^OCO i>l>l>COC0C0WH 0 H 1> © (M CO «5 — < 03 a :::::::: S3 «.--..© £ p< c3 w &0 « ^H 3 « o 'O rH WH(MC0^»OCOl>Coi> CO GO CO «5 o CM CM a o ^> so ?-. ^> . © ^ O © <£ id § <^> > to h t-i to t> TO ■ w < TO o H o o rH O «5 ^ ® ^ Q0 OS *C »0 OS £©- GO CO O »o ©^ CO rH cf j— I 00 CO o © €0- se- ^ CO O OS *0 CO d d S 23 It will be noticed by referring to the first line in the table that practically all of the men receive salaries in excess of $1,000 per year, and nearly half of them receive over $1,500 per year. Kef er- ring to the second line, it will be seen, on the other hand, that none of the women teachers receive salaries exceeding $1,500, and the large majority of them receive less than $1,000. To summarize: 1. The men teachers in the day elementary schools constitute about one-twelfth of the teach- ing force. 2. The men teachers are mostly in the three upper grades, but are relatively so few in number that a majority of the boys leave the elementary schools without ever having had a man room teacher. 3. There are five salary schedules for day ele- mentary grade teachers which provide much higher salaries for men than for women, and for teachers of the higher grades than for teachers of the lower grades. 4. The proportion of men teachers is increasing. Distribution and Salaries or Principals. At the close of the school year 1908-9 there were in New York City 424 principals of elementary schools. Of these 220, or a little more than one- half, were men. A few of the elementary schools 24 contain boys exclusively; about an equal number contain girls exclusively, and the great majority of them are made up of mixed classes, in general the men principals are in large schools containing boys' classes and mixed classes, while the women are in charge of schools containing girls' classes and mixed classes. The following table shows how the principals are distributed among schools con- taining boys', girls' and mixed classes : Character of Day Elementary Schools in Charge of Men and Women Principals in New York According to Report of Superintendent of Schools for 1909. Men Women Per Prin- Prin- Cent. Kind of School, cipals. cipals. Total. Women. Boys' 26 Girls' Boys' and Mixed . 25 Girls' and Mixed . Mixed 169 Total 220 2 28 7 31 31 100 2 27 7 46 46 100 123 292 42 204 424 Referring to the last column on the right, it will be seen that very few of the boys' schools are 25 presided over by women principals, and none of the girls' schools are in the charge of men prin- cipals. The mixed schools are in the charge of men and women principals in substantially equal proportion. By no means do all of the 424 elementary schools contain all the grades from the first to the eighth, inclusive. Something more than half of them are complete elementary schools containing all of the grades. In general these schools are in the charge of men principals. The next largest group of schools consists of those containing only the lower grades. They are in reality primary schools and in general are in the charge of women principals. The following table shows how men and women principals are distributed among schools having all of the grades, lower grades only, upper grades only, and intermediate grades only: 26 i— < 8 ^ Ph Pk ^ 8 0) 6 -3 »C ffi IM rH rH O S<3 ^ 8 . ^ r- C<5 s* <^> . a <=©- < w . O rH ^ 1 H 10 "* o O CO ^ ^ r-t O CO o O O ^ (N CO § 1 se- ee- £ 2,001 to 2,500 O » CO «o «&■ €£" 5ki § o rH O 9 O O CO © r* -* rH OJ ee- se- o "<-. 1 o o n ~ 1 >-i ° ! ° »o r-i Oi £ & O ° O ° O -& QO rH ^ «s €©• rH Q 5^ e r««i e 1 «*3 **-. o § o •5* ■K> ^ • fl f£> ■I P S ■+* 00 • Q 1 1 s u 35 Referring to the first line it will be noted that more than half of all of the men teachers are re- ceiving salaries ranging from $2,000 to $2,500. In contrast with this it will be seen that more than half of the women teachers are receiving salaries ranging from $1,500 to $2,000. The average man receives a salary slightly in excess of $2,100, whereas the average salary for the woman is some- thing less than $1,600. All of these figures show that on the average the men teachers receive salaries amounting to $500 more than those paid to women teachers. There are seventeen high school principals, all of them men. They are paid under a schedule providing that a principal of a high school having supervision over less than twenty-five teachers shall receive $3,500 per annum, while one super- vising more than twenty-five teachers shall receive $5,000 per annum. It is noteworthy that no sex distinction is made in this schedule. In general, conditions obtaining in the high schools with regard to salaries are duplicated in the training schools. Here the salary schedules are identical with those in the high schools, with the exception that there is in addition a schedule providing for the salaries of model and critic teachers. There are seventy-six of these teachers, and they receive a salary of $1,000, increasing to $1,500 in five increments of $100. 36 Evening Schools. Evening schools are of four kinds — high schools, elementary schools, trade schools and industrial schools. During the last school year, the high schools and trade schools were in session from Sep- tember to May, for a period of 120 evenings. The industrial and elementary schools were in session from October to April, for a period of ninety evenings. The enrollment, register and average attend- ance in these schools appear in the following table : Average Enroll- Amend- ment. Register, ance. High schools 26,245 21,597 8,474 Elementary schools. . 87,000 77,051 30,979 Trade and industrial schools 7,045 6,580 2,564 By referring to this table, it will be noted that the average attendance in the evening schools is about one-third as large as the enrollment. This is because many students enroll and do not attend, or attend for a short time only. 87 The numbers of schools and teachers are as fol- lows: Evening Schools and Teachers. Schools. Teachers. High schools... 15 379 Elementary schools 84 1,340 Total 99 1,719 It will be noted that there are about 1,700 teachers in the evening schools. All of them are paid by the evening, and no discrimination is made on the basis of sex. In the evening high schools: teachers are paid $5 per evening, and in the ele- mentary schools $3 per evening. Teachers oi trade subjects in the evening high schools are paid $5 per evening. Principals in the evening high schools are paid $7 per evening, and those of ele- mentary schools $5 per evening. Supervisors of special subjects receive $6 per evening; substitutes in evening high schools $3, and those in evening elementary schools $2. To summarize: 1. Boys' high schools are taught mostly by men teachers, girls' high schools by women teachers, and mixed high schools by teachers of both sexes. 38 2. The great majority of all of the high school teachers are assistant teachers. 3. On the average the men teachers receive $500 each per annum more than the women teachers. 4. There is no sex distinction in the payment of high school principals. 5. Salaries of training school teachers are in general identical with those in high schools. 6. There is no sex distinction in the payment of teachers of evening schools. 39 PART II. STUDIES AND CONSIDERATIONS, CHAPTER III.— UNDESIRABLE MUL- TIPLICITY OF SALARY SCHEDULES. The teachers in the public schools of New York City are paid according to no fewer than eighty- five salary schedules. In the opinion of the Com- mission this number should be largely reduced in the interests of efficient administration. One of the most fruitful sources of bitterness, dissatisfac- tion and disagreement on the part of employees of all grades in the Department of Education is found to be the transfer of teachers from one grade to another. The cause of this trouble rests in the multiplicity of salary schedules. Women teachers in the elementary schools, for example, are paid according to three different salary schedules, depending on the grade taught. It often happens that the number of classes in the upper grades in one school is reduced, thus leaving one or more teachers without classes corresponding to their salaries. These teachers must now be transferred to another school and put in charge of classes of the appropriate grade, for legally a teacher in one grade cannot be transferred to another grade with a lower salary except upon charges and after trial. 43 It is this transfer that causes the trouble. Al- most without exception there is in the second school, some teacher who has been working and waiting for years for the opportunity to be pro- moted to the upper grade position which she now sees taken by an outside teacher. This situation gives rise to disappointment and discouragement. The teacher who is transferred objects to leaving the school to which she has become accustomed and where her friends are and to moving among strangers and perhaps to a part of the city far dis- tant from her home. The principal of the school does not like to lose her. The principal and teach- ers of the new school are hostile to her and oppose her coming. The school officials are subjected to great annoyance in bringing each case to final set- tlement. In general after a settlement is at length reached it is satisfactory to nobody. The objections to the present sj^stem of multiple schedules which have been reviewed are by no means the only ones or perhaps the most import- ant. The well-being of the schools demands that so far as possible teachers be assigned to the work that they can do best. The present salary sched- ules largely prevent this. A teacher's only hope of advancement now is to secure a class of a higher grade even if she have superior ability for teaching the younger pupils. This superior ability, as well as the interests of the children, is therefore sacri- 44 ficed. The work of the lower grades in the ele- mentary schools when properly done is just as dif- ficult as that of the upper ones and is always just as important. It is clear that it should be equally compensated. Still another argument in favor of uniform schedules covering as many grades as possible is that, at present, teachers legally eligible for ad- vancement in one borough are ineligible in another. Some licensed prior to a given date are eligible, while others licensed later are not unless they obtain a higher license after examination. These conditions are most undesirable. They would dis- appear with the adoption of uniform schedules covering all of the grades. In general the arguments in favor of reducing the number of schedules are : 1. This would do away with a prolific source of dissension and discouragement in our school system. 2. A unification of schedules will make for a more effective and efficient school system, tend to locate teachers in the positions where they can work to the best advantage and make the motive for transfers increase in professional efficiency rather than better pay. 45 CHAPTER IV.— CONCERNING SALARY INCREASES. Salaries in Other Cities Compared with those in New York. With rare exceptions the salaries of teachers in New York City are higher than those paid in any- other city in the country ; there is no city that pays as high salaries on the average and only in a few positions in a very few cities are wages as high for work of equal grade as they are here. The facts regarding the average salaries in the largest cities are shown in the following table: Average Salaries in Four Large Cities in 1910. Elementary Elementary High School Teachers. Principals. Teachers. New York . . . $1,006 $2,878 $1,895 Philadelphia . 756 1,599 1,464 St. Louis. . . . 804 2,265 1,273 Newark .... 855 2,280 1,829 Average Salaries of High School Teachers in Seven Large Cities in 1910. Pittsburg $1,655 Milwaukee 1,330 San Francisco 1,612 Kansas City 1,355 Los Angeles 1,542 Seattle 1,222 Jersey City 1,626 It is noteworthy that in every case the salary paid in New York is higher than that paid in any other city. The greatest differences in favor of New York are shown in the figures for elementary teachers and principals. The smallest differences are shown in the salaries of high school teachers. Here it is especially noteworthy that Newark and Jersey City are not far behind New York in their payment of high school teachers. Facts regarding minimum and maximum salaries in the largest cities are shown in the fol- lowing table. The data were gathered in the at- tempt to secure complete information covering the twenty largest cities, but it has been necessary to omit New Orleans and Washington because ef- forts to secure information from those cities were unavailing, and Jersey City has been included in the list because of its proximity to New York and its high salary schedule : 47 o © to «o ^3 >> f—i 05 o3 13 ft © •8- a fl 0) I— H o . O ce wis f! 03 W o 03 H >»■ rH 03 H-i H s 3 o o o o • © o © © © © a o o o o • 00 © © © © © *C »o »o i> • 1— 1 © © ^ ^ CO X CO CO o t- <=e- Ol rH rH rH r-i 0* ©©©©©"*©©©©© ©©©Q0©©©©©©00 0J N 9! N (N 85 N N (N* H H ©©©©©©©©©©© ©©©«5>©©©©©^© *^©©fc~l>©©©©XOOOOHOOONN 'f. Q CO H 1> N Oi O O^ O e W O^rHrHrH r-T r-i r- 1 rH rH es- © © © © © to 0J -* © © »o »* oj © © © © © «5 «5 O O ■* ^ «3 ^ *C © «5 X O o3 • i— i J3 o 13 o3 o3 .^ ^a ^ 13 O Hi o3 O ."S &C H3 'rH fl s r^H CO 13 > -4-J I s S <1 £ 2 € 55 tS O 3 « « a * o S S 49 In several of the cases, especially in the column showing minimum salaries for high school teachers, it will be noted that the figures for other cities are higher than the figure for New York. In this con- nection it must be remembered that the minimum salary for high school teachers in this city is for all practical purposes $1,100, and not $700; while there are a few teachers at the latter figure, they are so few that the number is comparatively negli- gible. A scrutiny of the foregoing table will show that in practically all of these cities, salaries in each of the three grades of position are higher than they are in New York, and, as has already been shown, wherever average figures can be obtained the New York figures are without exception higher than all of the other figures. The foregoing facts are put forward as a statement of comparative conditions, not as constituting an argument against increases in New York. The salaries of teachers here are higher than they are elsewhere. In the opinion of the Commission this condition is normal and should be maintained. The point of greatest importance in this connection is not, per- haps, that our city is still ahead in the amount it pays its teachers, but rather that the other cities are rapidly overtaking us. The evidence on this point will be presented in the following section. 50 Upward Trend of Salaries in Other Large Cities. During the past few years salary increases have been frequent and general in other large cities, while no change has taken place in New York. The attempt has been made to gather data show- ing increases in salaries in the twenty-five largest cities from the year 1905 to 1910. Conditions among two classes of teachers, regular grade teachers and high school teachers, are here pre- sented as being representative of general tend- encies. Among the twenty-five largest cities fig- ures for New York are omitted, and it has been impossible to secure those for Washington. Among the other twenty-three cities there have been during the past five years increases in the salaries of elementary teachers in the case of twenty ; in the other three cities no changes have taken place. Here, as in the rest of this discus- sion, the per cent, of increase is reckoned by com- paring the salary midway between the lowest and highest salary paid five years ago with a salary midway between the lowest and highest salary paid at the present time. The average increase in the cities which have adopted new schedules amounts to twenty-two per cent. The facts are as follows : 51 Percentage of Increase in Salaries of Grade Teachers in the Twenty-five Largest Cities Between 1905 and 1910. Per Cent. City. Increase. Toledo 41 Baltimore 39 St. Louis 39 Jersey City 29 Indianapolis 29 Rochester 29 Minneapolis 28 Detroit 28 St. Paul 27 Milwaukee 25 Newark 20 Providence 18 San Francisco 17 Cleveland 13 Chicago 11 Louisville 11 Cincinnati 11 Pittsburg 8 New Orleans 8 Philadelphia 6 Boston No change Buffalo No change 52 Per Cent. City. Increase. Kansas City No change Washington No data New York Omitted Average increase where change has been made 22 Average increase for all cities furnish- ing data 19 Information concerning changes in high school salaries has been more difficult to secure. Among the same twenty-three cities fifteen have adopted schedules providing increased salaries, two report no change and six have failed to furnish informa- tion. The average increase among those report- ing changes amounts to 22 per cent. If we in- clude all of those furnishing data this falls to 19 per cent. In other words, the percentage of in- creases in high school salaries in these cities has been precisely the same as the increases in grade salaries. The facts are presented in the following table : 53 Percentage of Increase in Salaries of High School Teachers in the Twenty-five Largest Cities Between 1905 and 1910. Per Cent. City. Increase. Cincinnati 50 St. Paul 36 San Francisco 36 Baltimore 33 Newark 26 Pittsburg 26 Jersey City 22 St. Louis 22 Minneapolis 18 Milwaukee 14 New Orleans 13 Chicago 13 Providence 12 Cleveland ; 6 Detroit 2 Boston No change Buffalo No change Kansas City No change Indianapolis No data Louisville No data Philadelphia No data Rochester No data 54 Per Cent. City. Increase. Toledo No data Washington No information New York Omitted Average increase where change has been made 22 Average increase for all cities furnish- ing data 19 The lesson of these two tables is that there has been during the past five years an upward tend- ency in the matter of teachers' salaries in the largest cities which has secured for the teachers an increase of something more than 20 per cent, in grade salaries and slightly less than 20 per cent, in high school salaries. The Increase in the Cost or Living. During the past ten years the cost of living has advanced steadily and rapidly, whereas the salaries of the teachers have remained unchanged since 1900. The degree to which prices of commodities have advanced may be judged from the available index numbers of wholesale prices in the United States. There are several series of such numbers. 55 The best known are those published by Dun's and Bradstreet's Commercial Agencies and by the United States Bureau of Statistics of Labor. The Dun series of index numbers is designated to give the cost of the necessities of life for the in- dividual. The numbers are based on wholesale quotations and about 350 articles are represented. According to this series the cost of living in 1910 is 35 per cent, greater than the average for the ten years 1890 to 1899. The Bradstreet series gives the totals of the prices per pound of ninety-six articles. Accord- ing to this series the prices in January, 1910, were 36 per cent, higher than the average for the years 1892 to 1899. Index numbers compiled by the United States Bureau of Statistics of Labor show the wholesale prices for 260 commodities for each year from 1890 to 1908. The increase of the 1908 figure over the average for the ten years 1890 to 1899 is 23 per cent. The reason that the increase in this series is smaller than in the preceding series is that the proportion of food articles in the Labor Bu- reau tables is smaller than in the other tables, and the cost of food has increased more rapidly than the cost of other commodities. • Turning now to retail prices we find that ac- cording to Bulletin No. 77 of the United States Bureau of Labor, retail food prices in 1907 were 56 21 per cent, higher than the average prices for 1890 to 1899. According to the report of the Massachusetts Commission on the cost of living issued in May, 1910, the total increase of the cost of living for a working man's family in Massachusetts in 1910 was 21 per cent, higher than in 1901. The foregoing comparisons give five different figures relating to the increase in the cost of living during the past ten years. The figures are all dif- ferent and all computed on different bases. They are as follows : Cost Increases Since 1900. Per Cent. Source. Increase. Cost of living, based on wholesale prices, Dun's figures 35 Wholesale prices, Bradstreet's index numbers 36 Wholesale prices, United States Bureau of Labor 23 Retail prices of food, United States Bu- reau of Labor 21 Cost of living of working man's family, Massachusetts Commission 21 57 This gives a series of percentages ranging in size from 21 to 36. No one of the numbers pur- ports to give the increase in cost of living in New York City during the past ten years which is the datum of immediate interest to the present in- quiry. Roughly speaking, the percentages cited above range from one-fifth to one-third. As it is the consensus of opinion of nearly all who have written on the subject that the cost of living in New York City has advanced more rapidly than it has in most other localities, it would seem to be a conservative estimate to conclude that the increase in the cost of living in New York City during the past ten years lies between one-third and one-fifth, and is approximately equal to one-quarter, or 25 per cent. On this basis it is apparent that the salaries of teachers should be substantially increased if they are to equal in purchasing power the value that they had ten years ago, when the present schedules were adopted. How this would work out in the cases of the commonest present salaries is shown in the following table, where the figures in the left hand column show present salaries and those in the right hand column salaries which would have to be paid to bring the value of the wage received up to the value that the same wage had in pur- chasing power ten years ago : 58 Increases Necessary to Render Some of the Com- monest Salaries Equal in Purchasing Power to Their Value Ten Years Ago. Necessary to Equal Purchasing Present Value in Position. Salary. 1900. Grade Teachers — Men $2,400 $3,000 Women 1,240 1,550 Women 720 900 Elementary Principals — Men 8,500 4,375 Women 2,500 3,125 High School Teachers — Men 2,400 3,000 Women 1,900 2,375 The foregoing is presented as illustrative of the manner in which a flat 25 per cent, increase would work out. It is not intended to represent the con- clusions of the Commission as to the changes which should be made in the existing schedules. 59 Is the Beginning Wage of the New York Teacher a Living Wage? Women teachers entering the service of New York City are paid during the first year at the rate of $600 per annum. The question has been much discussed whether or not this is a living wage. Un- fortunately few reliable data are available show- ing the cost of living of a young woman in New York City who must live in the manner demanded by society of a public school teacher. Reliable data are available showing what it costs a laboring man decently to support his family in New York City. These figures have some value in the present inquiry. In 1907 the report of the State Committee on the Standard of Living of the New York State Conference of Charities and Correction stated that it was a conservative esti- mate that the sum of $825 per annum was suffi- cient to support a laboring man's family consisting of himself, his wife and three small children in New York City. The Committee on the Standard of Living of the New York State Conference of Charities and Correction reported in 1906 that such a family as the one mentioned in the preceding paragraph could maintain a normal standard of living in New York City for the sum of $950 per annum. 60 More significant than the foregoing estimates, is the conclusion of the report on the Standard of of Living of the Russell Sage Foundation pub- lished in 1909. The investigation conducted by the Foundation was most careful and extensive. The conclusion reached was that a laboring man's family in New York City could get food enough to keep soul and body together and clothing and shelter enough to meet the most urgent demands of decency for from $900 to $1,000 per annum. It will be noted that the foregoing estimates refer to budgets of laboring men, and the basis of computation in each case is a family composed of father, mother and three small children. From these figures it would appear that the sum of $600 per annum should be sufficient to enable a woman teacher in New York City to live on a slightly better basis than the laboring men and their wives, whose living expenses went to make up the foregoing figures. The most significant data bearing on this point are the outcome of an investigation conducted by the New York Association for Improving the Condition of the Poor in the year 1907, to discover the relation of salaries to the cost of living among the members of its relief staff. Careful records were gathered showing the expenditure for living expenses of twenty-two young women employees. These young women received salaries ranging be- 61 tween $540 and $1,000. These salaries are com- parable to those received by school teachers, and the young women employed are of somewhat similar social status. Among the twenty-two young women nine were able to live within their salaries, eight spent ex- actly the amount received, and five spent more than they were paid; ten or them had others to support wholly or in part. It was found that those who succeeded in living within the sum of $600 per year prepared their own breakfasts, paid 15 cents for lunch and 25 cents for dinner and $4 per week for room rent. Even with the closest economy some of them did not succeed in keeping their necessary living expenses down to $600 per year. In the search for further light upon this problem, members of the Commission have ques- tioned a number of school teachers in New York City, as well as stenographers and typewriters em- ployed in offices of the better grade regarding their expenditures and their experiences with salaries of different amounts. The testimony of these young women is without exception to the effect that it is possible for them to live on the sum of $600 per year only if they are receiving help from home, or are living with their families, or possess upon beginning work an outfit of clothes sufficient to avoid the necessity of buy- ing many new ones during the first year or two. 62 The dividing line between just being unable to meet the necessary living expenses and just being able to meet these expenses, seems to be the line which is crossed when one progresses from an in- come of $50 a month to one of $60 per month. The conclusion reached as the result of these in- quiries is that the lowest living wage for a teacher in New York City is $720 per annum, rather than $600 per annum. Salary Increases on the Basis of Efficiency. In many cities salary increases are uncondi- tional and are based upon the length of service. In others they are contingent on increased efficiency, as tested by examinations, class room work, or professional study. There are also many cities where combinations of the two systems are in force. The Commission has studied a number of these different systems in the endeavor to discover the respective merits and applicability in this city. Some typical plans are in brief as follows : Fort Wayne — Salary increases are regulated on the basis of scholarship, class room efficiency and length of experience combined. Each case is judged separately and the salary fixed by the Board of Education. Fitchburg, Mass. — Unconditional annual incre- ments plus more rapid advance as a reward for professional study. 63 Cincinnati — Unconditional annual increments until a given point in the salary schedule is reached. Above this the final increment is given for class room efficiency and continued profes- sional study. St. Louis — Unconditional increase, maximum being reached in five annual increments. Baltimore — Schedule divided in two parts. Pro- motion to increments in the first part is awarded on the basis of class room work. Promotion to increments in second part is given on the basis of a written and oral examination. In addition a bonus is provided for special work of an executive nature. This is awarded to about 11 per cent, of all the teachers. Hastings, Neb. — Teachers are grouped in three classes. Increases in each class are automatic. Promotion in next above is based on efficiency in class room work or course of professional training. Cleveland — There are three salary groups cover- ing four years each. Promotion in each group is automatic. Promotion in the next higher class is on the basis of efficiency as rated by super- visors, principals, etc. In New York City increases in the elementary schedules are unconditional during the first seven years. At this point increases theoretically stop unless the services of the teacher have been ap- proved as meritorious by the majority of the 64 Board of Superintendents. The same thing takes place after the teacher has taught for twelve years. This divides the teaching period into three groups, with promotion to the second and third groups contingent on giving meritorious services. In actual practice these provisions are rarely ob- served. It seems to be the almost unanimous consensus of opinion of the administrative officers of the New York Board of Education that it would be dangerous to introduce at this time a further ex- tension of the so-called " merit system " for the promotion of teachers. The basis on which this position is taken is that such a change would tend to bring about an undesirable intervention of political and other influences in the securing of promotion. Whether or not this contention is valid, it probably is so in view of the attitude of the administrative officers of the Board of Edu- cation. Because of this, it is the opinion of the Commission that a further extension of the merit system should not be introduced in the payment of teachers in this city at the present time. The Bonus System. In the opinion of the Commission an increased use should be made of the practice of giving in- creased remuneration for special service through granting a bonus over the regular salary rather 65 than through the creation of a new salary grade with its separate schedule. This practice is at present followed to some extent in the New York schools. We believe that the number of positions where it should be used ought to be increased. On the other hand, there are at present a large num- ber of bonuses paid for the teaching of mixed classes which we do not feel are justified. The principal advantages of payment through the bonus system are: First, that this does not increase the number of salary schedules; and sec- ondly, that if a teacher receiving a bonus for doing additional work does not render satisfactory ser- vice no legal question can arise as to the right of the administrative officers of the school system to reassign the teacher to his regular work and stop payment of the bonus. Because of the foregoing reasons, it is the opinion of the Commission that assistants to prin- cipals in the elementary schools should be regular teachers assigned to this special work and paid a bonus in addition to their regular salaries rather than being paid as they are now under separate salary schedules. In the same way we hold that heads of departments in high schools should be regular high school teachers assigned to this extra work and should receive payment for it in the shape of a bonus. 66 Bonuses are already paid to teachers of some kinds of special classes and are not paid to others. We believe that they should be paid to teachers of so-called "C," " D," " E," "Ungraded" and " Crippled " classes. On the other hand, our pro- posed reorganization of the salary schedules in the elementary grades provides for differentiation be- tween salaries paid for teaching boys and girls. For this reason we believe that the bonus of $60 per annum now paid to women teachers teaching boys' classes and mixed classes containing 40 per cent, boys should be done away with. To summarize: 1. We believe that the use of the bonus system in the payment of salaries should be extended. 2. We believe that assistants to principals and heads of departments should be regular teachers assigned temporarily to special service and paid by the bonus system while they are so employed. 3. We believe that the bonus of $60 per annum now paid to women elementary teachers for teach- ing classes of boys should be discontinued. Clerks or Additional Teachers. There are employed in the elementary schools of the City some 416 clerks or so-called " addi- tional teachers " whose duties are to teach classes in the absence of class teachers and to perform such clerical work as the principal shall determine. 67 These additional teachers hold substitute licenses or higher licenses. They are appointed annually by the Board of Superintendents. They are paid $3 per day, men and women being paid alike. In the opinion of the Commission this class of employee is seriously underpaid. At $3 per day a clerk who is present during each of the 194 school days during the year receives an annual wage of $522. If a clerk is absent because of sickness payment is deducted even if the absence is directly due to pressure of work in the school. This treat- ment is in distinct contrast with the Board's treat- ment of teachers absent from illness. If a teacher is absent from illness she is never- theless paid for Saturdays and Sundays, holidays and the summer and other vacations. The clerk, on the other hand, receives no payment for Satur- days, Sundays or holidays. Furthermore, while a teacher receives annual increments in pay as a result of satisfactory continuous service, a clerk may never look forward to higher wages no matter how long or excellent may be his record. The duties of the clerk are onerous and com- plicated. They include the making up of monthly payrolls, the requisitions for supplies, working papers for the children, filling in health reports, keeping records of attendance, admissions and dis- charges, carrying the general correspondence and frequently acting as secretary of conferences, as- 68 sisting in fire drills, etc. In addition to these duties the clerk acts as a teacher whenever his services are required and there is an increasing demand that the clerks have some knowledge of stenography and typewriting and sufficient mus- ical ability to play the piano for singing and marching at the morning assembly. It is the unanimous opinion of the Commission that the clerks or additional teachers should re- ceive higher wages and that they should be paid on the basis of an annual salary, increasing yearly through successive increments. 69 CHAPTER V.— INTERRELATION OF SEX, WORK AND PAY. Sex Comparisons. The Commission has conducted seven studies of the comparative records of men and women teach- ers, principals and other wage earners in the endeavor to bring to light any features bearing on their comparative value to the school system. The first two of these consist of a tabulation of the attendance of the children and the per cent, of children promoted during the past two school years in the elementary schools presided over by men and women principals. The results of these two studies are shown in the following table : Comparative Attendance of Pupils in Element- ary Day Schools in Charge of Men and Women Principals, New York City, During Two Years. Schools Schools Under Under Men Women Principals. Principals. Median percentage of at- tendance of pupils 1907-8 87 88 Median percentage of at- tendance of pupils 1908-9 89 89 70 Comparative Percentage of Pupils Promoted in Elementary Day Schools in Charge of Men and Women Principals, New York City, During Two Years. Schools Schools Under Under Men Women Principals. Principals. Median percentage of pro- motion of pupils 1907-8 . 80 81 Median percentage of pro- motion of pupils 1908-9 . 81 81 Referring to the first table, it will be noted that the attendance of pupils in schools in the charge of men principals is virtually the same as it is in schools under women principals. In a similar way reference to the second table shows that the per- centage of promotions in the two classes of schools is practically the same. In both cases a slightly better showing is made by the women, but the dif- ference is so small that we cannot be sure that it is significant. In this connection it must be re- membered that the schools presided over by the men principals include in most cases all of the grades from the lowest to the highest, whereas the schools under women principals contain in a ma- jority of cases primary grades only. This funda- 71 mental difference prevents the two sets of data from being truly comparable. The third study consisted of a tabulation of the number of years of service of the men and women teachers in the elementary and high schools. It has frequently been claimed that a large propor- tion of the women teachers regard their work as a temporary vocation rather than as a profession, and remain in it only a few years, marry and leave. Somewhat less frequently it has been claimed, on the other hand, that large numbers of men teach school while studying for the law or some other profession and then drop out. The facts as to the length of service of the representa- tives of the two sexes are shown in the following' table : Length of Service of Men and Women Teachers in New York Day Elementary and High Schools According to Budget of 1910. Number. Per Cent. Years. Men. Women. Men. Women. 1-3 385 2,600 19 17 4-6 750 3,367 37 22 7-9 362 2,701 18 17 10 and up 538 6,947 26 44 Total 2,035 15,615 100 100 72 Referring to the two columns on the right it will be seen that the largest group of the men teachers are those who have been in the service from four to six years, whereas the largest group of women teachers are those who have been in the service for ten years or more. These figures show that so far as the present teaching force is con- cerned, the women teachers have on the average remained in the service of the department for a longer period of time than have the men. The fourth study was related to the foregoing, and consisted of an investigation of the records of the body of teachers who entered the service in the year 1900. The object was to discover the pro- portion of the representatives of both sexes who survived in the service and the point at which those who left, dropped out. The facts as to survival are presented in the following table : Table Showing Teachers Entering New York School System (All Schools) in 1900; Num- ber of Same Still in System in 1910 and Number and Per Cent. Leaving During the Interval. Men. Women. Total. Appointed during 1900. . Teaching June 1, 1910. . . Leaving during interval . . Per cent, leaving 73 158 987 1,145 96 602 698 62 885 447 39 39 39 Referring to the percentage figures shown in the last column we learn that during the eleven years from 1900 to 1910, inclusive, 39 per cent, of the men and 39 per cent, of the women dropped out. The total data presenting the facts for each individual showed that most of the men who dropped out did so during the first three years, whereas the women left more slowly, and it was not until five years had passed that as many as half of those who dropped out during the entire period had left the service. The results of these two studies indicate that whatever difference there is in the matter of remaining in the sendee of the school system, it is in favor of the women rather than in favor of the men. The fifth study was an investigation of the com- parative number of absences from duty of the men and women teachers. These absences are seriously frequent in the New York school system. De- tailed data covering the entire system of day schools for the months of May and December, 1909, and May, 1910, show that the aggregate absences from duty of teachers in the school system amount on the average to over 100,000 hours per month. This represents an annual money loss to New York City, directly and in- directly, amounting to about $1,200,000. During each school month of twenty days the average man teacher is absent from duty two hours and forty 74 minutes, the average woman teacher six hours and twenty minutes. The absences in the different classes of schools are shown in the following table : Comparative Absences From Duty of Men and Women Teachers Based on Reports of New York Board of Education for May and De- cember, 1909, and May, 1910. Figures Show How Many Hours Average Woman Teacher Is Absent, for Each Hour That Average Man Is Absent. Men. Women. Elementary teachers 1 2.2 Teachers of special branches .... 1 1.9 High school teachers 1 3.5 Training school teachers 1 2.3 Entire system 1 2.5 The figures in the second column show that the average woman is absent from duty two and a half times as much as the average man. The compari- son is most unfavorable in the case of the women high school teachers, who are absent three and a half times as much as the men high school teachers. The sixth study consisted of a comparison of the records of 150 men and 150 women teachers teaching in the same grades and schools. By this 75 is meant that transcripts of the official records were taken covering the cases of one man and one woman teacher in the eighth grade, one man and one woman in the seventh grade, one man and one woman in the sixth grade, etc., in each school where men and women taught together in these grades, until the total of 150 cases for each sex was reached. This process eliminated all possibility of favoring the representative of one sex over that of the other. The comparison covered the records of the teachers for the first term of the school year 1909-10. The results are presented in the following table : Comparative Records of 150 Men and 150 Women in the Same Grades and Schools, New York, During First Term of School Year 1909-10. Men. Women. Average size of class 41 41 Average per cent, of children pro- moted 75 . 1 74 . 7 Per cent, of attendance of chil- dren 84 82 . 3 Average day's absence of teachers .69 .95 Average times tardy per teacher . .46 .36 Referring to the first line, it will be seen that on the average the men and women taught classes 76 of exactly the same size. The second line shows that the percentage of promotions of children in classes taught by men is slightly higher than it is in the classes taught by women. The third line shows that the percentage of attendance of chil- dren in the classes taught by men was somewhat higher than it was in the classes taught by women. The fourth line shows that absences from duty were more frequent among the women than among the men. The fifth line shows that tardi- ness on the part of the teacher was more common among the men than among the women. The re- sult of the comparison is on the whole more favor- able to the men teachers than to the women teach- ers. The seventh study consisted of an investigation of the comparative wages of the men and women wage earners in teaching and in other occupations. 77 12 i 5C 4-5 - W "o bJD 03 ^ a &^ qj {> ^ p S P o3 a SP .Sb- 02 o3 g ^ co O -■ CD P * co 13 02 ^ .5 _ OS TJ go fe P ^ «H p «M a ^ h •^ O o p *-* ^ o °^ •rt Ph .t3 « «_ P o u o Ph •r— I Ph cy p o S * .2 S o 3 > W fa ■"d 0) +j 03 . *-» p >* P P o .S P •l-H Ph P O CO CO J— I r— I 4-> CO o 00 © OS l-H p ^5 P -M Ph "^ ?H O P Ph o3 ■rf Ph rH M a «1 a O «H H3 4-3 O D'd o 8 I ►> 03 «J rH (M rH O 05 O O CO OS oo «3 oo +j O o GQ <1 00 Ph a> ^5 w 03 -H «H O CO CU o3 bC o3 o3 Ph co ° S o o 03 O «3 CO 0) -C! O CO o o 00 os o o OS CO Ph » Ph 03 4-3 p a o CO «0 "to fc; g § to •ca to ^3 to 5*. 8 o H-^ &H 5fc &H 8 ^ 5si &H a* "to § fc to § to o -K> fe ^3 ^3 e 8 t3 8 05 to ^ *o I 5 g © C5 s o rH »>s5 o >5 fe to O ^ f-a hO e h H3 d • I— I O -i Ph n3 d 03 w 1 Ph < H 1> M i> C5 IM lO "* O Q0 CO "* H MJ H N 05 «5 GO CO Ol N CO (M Ol CO i> CO rH CO i> CO Q0 01 CO OS CO CO 01 OS r-i 1> r-i 1> CO CO rH CO" )H 05 i> O «5 05 *0 GO CO h h a GO ^ CO CO 01 05 ir- "* C5 i> i> rH N W N 03 00 ^ 05 Ol rH 1> rH i> 01 05 CO rH GO ^ rH fc~ ■«# 01 rH 01 o d • I— I Ph o3 H^> a a) 03 Ph •r- 1 o d >l— I ?H Ph d ^ -4-3 d a a © )-H r m t^ CD © © §1 s o "£» bs* §; to V. 1-V Es^ O 8 r^ ^ and W ere Gra < 8 L^ <50 r«5 ^ oo to «+-, oo 8 O 8 • 3 Q 8 § ^ -8 o f< ES to ^ £ oo 8 o • © © T-i © © rH rH »o 00 © © © © 88 If there is in fact any such shortage of candi- dates of either sex as has been claimed, the figures entirely fail to reveal it. The number of men and women applicants in the second three-year period is almost double that of the first period. The number of men to whom licenses were granted has greatly increased, and the number of women has increased slightly. There has been little change in the number appointed. The apparent absence of any shortage of candidates is shown by the fact that in the second three-year period over 1,400 men and over 1,500 women applied for posi- tions, and the number of each sex actually ap- pointed was only a little over 180. In other words, the supply of candidates was about eight times as great as the demand. The conclusion reached from all of the fore- going is that the law of supply and demand is not the controlling factor fixing the excess in wage paid to men teachers in New York City over the wages paid to women teachers in corresponding positions. This conclusion is reached because 1. Teachers are secured from an eligible list, where the supply is limited by the frequency and character of the examinations. 2. The supply of men candidates, the relative supply of successful candidates, and the propor- tion of men appointed are all greater than the present proportion of men in the service. 89 3. After the applicants are duly qualified, the Board of Education appoints to positions a larger percentage of the women candidates than it does of the men candidates. 90 CHAPTER VI.— SALARY FOR POSI- TION. The Need for Men Teachers. One of the first acts of the Commission was to address letters to the leading American educators, requesting them to state their opinion with respect to the necessity for employing men teachers. They were requested to state : 1. Whether or not they believed that the public schools need men as teachers and principals. 2. Whether or not they need them as teachers to train them as principals. 3. In what grades and for children of what ages they need male teachers. 4. What, if anything, a man teacher contributes that is not equally contributed by a woman teacher. 5. If they believed women to be more efficient teachers than men, the grounds for that belief. These letters were sent to the presidents of uni- versities, principals of normal schools, heads of departments of education in universities, writers and lecturers on education, superintendents of city schools and school authorities in New York City. 105 replies were received. Of these replies 100 gave answers to all or some of the questions, 91 The first question, whether or not the public schools need men as teachers and principals, was answered in the affirmative in ninety-eight out of the 100 replies, and in the negative in one reply. It was unanswered in the remaining letter. The following are some typical answers to this ques- tion: " For both boys and girls — but especially for boys — there is need in the grammar grades and in the high school of positive in- fluences that are masculine in character, as well as of positive influences that are dis- tinctly feminine." — Elmer E. Brown, United States Commissioner of Education. " Boys from twelve to fifteen and probably girls ought to have the teaching of a man for at least part of the time." — David Snedden, Commissioner of Education for Massachu- setts. " I believe that the public schools need men as teachers and principals." — Walter E. Ranger, Commissioner of Public Schools for Rhode Island. " I believe about the worst crying need of our schools is more male teachers in the upper grades." — President G. Stanley Hall, of Clark University. " I would say that the educational work in the schools of the country is now suffering 92 from its desertion by men and its practical monopoly by women." — President J. G. Shurman, of Cornell University. " I am fully convinced that men teachers are indispensable in the high schools, and in the upper elementary grades are highly de- sirable." — Hugo Munsterburg, of Harvard University. " The public schools need men both as teachers and as principals and the need for some men in every large school begins as early as twelve years of age for both boys and girls."— Ex-President Charles W. Eliot, of Harvard University. " It is my opinion that men are highly nec- essary as teachers and principals in the public schools." — F. H. Beede, Superintendent of Schools, New Haven. " Undoubtedly it is desirable to have men teachers for boys above the age of thirteen or fourteen." — Stratton D. Brooks, Superin- tendent of Schools, Boston. " It is most advisable to employ some men teachers in the upper elementary grades." — J. M. Greenwood, Superintendent of Schools, Kansas City, Mo. " The elementary schools, in my judgment, need men as well as women, both as teachers 93 and as principals." — A. B. Poland, Superin- tendent of Schools, Newark. "If the child in the home needs the father as well as the mother for proper home-train- ing, then it needs the man as well as the woman in school for its proper school-train- ing." — M. G. Brumbaugh, Superintendent of Schools, Philadelphia. The second question was whether or not the schools need men teachers in order to train them to be principals. Fifty-seven of the answers were affirmative and five negative. In thirty-eight cases the question was not answered. The third question was in what grades the schools need men teachers and for children of what ages. Eighty-five replies were to the effect that men are needed for the upper elementary grades and the high school. Three persons an- swered that they are needed in all the grades, while one said that they are not needed at all. Eleven did not answer the question. The fourth question was what, if anything, a man teacher contributed that is not equally con- tributed by a woman teacher. One answer was, " Nothing desirable " ; two others said that the man teacher contributes nothing at all that is not equally contributed by the woman teacher. Twenty-three did not answer the question. The other seventy-four answers not only stated posi- 94 tively that the man teacher does contribute some- thing that is not equally contributed by the woman teacher, but attempted to specify. The trend of the answers may be judged from the following words and phrases given in answer to the ques- tion: Positive influences distinctly masculine in character. Masculinity. Man's viewpoint of life. Power. Elements of strength, of de- liberate judgment, of logical power, of execu- tive force. Positive convictions, practical sense, breadth of vision and sound judgment. Manly influence. Man's point of view on questions of civics, ethics and conduct. Vig- orous, aggressive and ambitious attitude toward life. Man's interest in mechanical contrivances, helping to develop the practical inventive faculty in boys. Man's interest in and understanding of, the fundamental prin- ciples of government and man's duties as a citizen. One of the most definite statements of the con- structive sort was from the pen of the Superin- tendent of Schools of the City of Holyoke, Massa- chusetts, who wrote: " A man teacher contributes a fairer and more just treatment of boys through man's better understanding of boy nature; an understanding based upon man's experience 95 as a boy; an understanding which a woman can never have simply because she is a woman." Another clear expression of a different point of view came from the Superintendent of Schools of Elizabeth, N. J., as follows : "I am strongly of the opinion that the presence of women as teachers of boys in the upper grammar grades and even in the first and second year of the high school, causes thousands of boys to become disgusted with and to leave the schools. Of my own knowl- edge many young men have been driven from school because of their intense dislike to being (using their own words) ' bossed by women.' * * * Indeed I am inclined to think that one reason for the evident contempt with which many business men look upon the public schools lies right here. Those men, many of them, were forced out of school because of their intense individualism, because they were strong, because they had reached an age where it was imperative that they be in- structed, directed, controlled and led by one of their own sex, and by a man larger and broader, both physically and mentally, than each youth felt himself to be." The final question of the five was in effect whether or not those answering, believed women to 96 be better teachers than men. This was answered by fifty-nine persons. Forty-one said that they believed that women were more efficient than men as teachers of the lower grades, and three con- sidered them more efficient in all grades. Eight said that they did not believe women to be more efficient teachers than men, and seven said that they were as efficient but not more so. Forty-one did not answer the question. The tabulation of the results of the inquiry shows, that while many of the correspondents left one or more of the questions unanswered, there is great unanimity of opinion expressed where an- swers are made. The results show that in general these educators hold that 1. The schools do need men as teachers and principals ; 2. They need them as teachers to train them to be principals; 3. They need men teachers in the upper grades and in the high schools ; 4. The qualities contributed by the man teacher that are not equally contributed by the woman teacher are distinctly masculine in character ; 5. Women are superior to men as teachers of the lower grades. 97 " Equal Pay " Systems in Other Large Cities. The Commission has attempted to ascertain con- ditions in the largest cities of the country with respect to the practical working out of " equal pay " and " non-equal pay " systems of salary schedules for teachers. These conditions are by no means easy to ascertain for the reason that there is no uniformity of practice in the systems em- ployed by different cities to pay their teachers. In many cities " equal pay " — payment for posi- tion — maintains throughout the elementary schools but not in the high schools. Among these are Newark, Jersey City, Harrisburg and New Haven. This condition is similar to that maintain- ing in New York City, where salaries in many of the positions are regulated on an " equal pay " basis, whereas in other positions this is not so. Positions in New York City in Which Salaries are Regulated on an Equal Pay Basis. City superintendents. Associate city superintendents. District superintendents. Principals of high schools. Principals of training schools. Principals of model schools. Model teachers. Directors of kindergartens, cooking and sewing. 98 Teachers of cooking and sewing. Evening school principals, supervisors and teachers. Vacation school principals, supervisors and teachers. Vacation playground and recreation center principals, supervisors and teachers. Principals of truant schools. Principals of parental schools. Principals of schools for the deaf. Teachers of schools for the deaf. Instructors of classes for the blind. Another difficulty in ascertaining conditions, arises from the fact that some cities have no definite salary schedules, but fix the salary sepa- rately for each new individual engaged. Again, in many places certain positions are reserved by custom for men and others for women. After much correspondence it has been possible to secure data covering conditions in the fifty largest cities of the country outside of New York City. These cities have been classified as justly as possible in two groups, according as their salary schedules provide for " equal pay " or do not so provide. By an odd coincidence this classification puts twenty-five cities in each group, as follows : 99 Table Classifying the Fifty Largest Cities as Having cc Equal Pay " and " Non-equal Pay" Systems of Salary Schedules for Teachers, 1910. Equal Pay. Non-equal Pay. Chicago. St. Louis. Cleveland. Buffalo. San Francisco. Pittsburg. Milwaukee. Detroit. Washington. Louisville. Minneapolis. Indianapolis. Kansas City, Mo. St. Paul. Toledo. Denver. Columbia. Los Angeles. Fall River. Memphis. Omaha. Portland, Ore. Seattle. Nashville. Philadelphia. Boston. Baltimore. Cincinnati. New Orleans. Newark. Jersey City. Providence. Rochester. Worcester. New Haven. Syracuse. Paterson. St. Joseph. Scranton. Lowell. Cambridge. Atlanta. Albany. Grand Rapids. Richmond. Wilmington. Camden. Bridgeport. 100 Among the foregoing fifty cities ten of those in the " equal pay " group and fourteen of those in the " non-equal pay " group employ no men teachers at all in their elementary schools. Many others employ fewer than half a dozen. This fact makes it impossible to gather from the data any valuable conclusions 1 concerning the relative effect of the two systems of payment in attracting and retaining men teachers in the elementary schools. However, the facts have been ascertained and tabulated as to the number of men and women high school teachers, and men and women element- ary principals, and the average salaries received by each group in the two classes of cities. All of these data are drawn from the records of the year 1905. The results are as follows: 101 Table Giving Data as to the Number of Men and Women High School Teachers and Element- ary Principals and Average Salaries Meceived by them Under "Equal Pay" and "Non- equal Pay " Salary Schedules in the Fifty Largest Cities in 1905. In Non- In Equal equal Pay Pay Cities. Cities. Number of men high school teachers 873 521 Number of women high school teachers 1,265 885 Number of men high school teachers per each 100 women teachers 69 58 Average salary of men high school teachers $1,264 $1,707 Average salary of women high teachers $1,054 $964 Amount received by average man for each $100 received by average woman teacher. . $120 $177 Number of men elementary principals 540 449 102 In Non- In Equal equal Pay Pay Cities. Cities. Number of women elementary principals 870 707 Number of men elementary principals for each 100 women principals 62 63 Average salary of men ele- mentary principals $1,697 $1,878 Average salary of women ele- mentary principals $1,261 $964 Amount received by average man for each $100 received by average woman principal $184 Referring to the third line in the table, the somewhat surprising fact is brought to light that in " equal pay " cities there are sixty-nine men high school teachers for every 100 women, whereas in the " non-equal pay " cities there are only fifty- eight. In other words, men teachers are propor- tionately more numerous in the high schools of the " equal pay " cities than in the " non-equal pay " cities. Referring to the next two lines we find that even in cities which ostensibly have systems of 103 " equal pay," the average salary of the men high school teachers is considerably higher than that of the women teachers. The explanation seems to be that although the representatives of the two sexes are eligible for the different positions, men are in practice appointed to the more lucrative ones. The result is that even in the " equal pay " cities, the salaries of the men teachers are 20 per cent, higher than are those of the women. The inequality between the salaries of the two sexes is very much greater in the " non-equal pay " cities. Here we find that the average man high school teacher receives $1,707 per annum, whereas the average woman receives slightly less than $1,000. The average salaries of the men are 77 per cent, higher than those of the women. The men in the " non-equal pay " cities are better paid than the men in tne " equal pay " cities, whereas the women are not quite so well paid as those in the " equal pay " cities. Referring now to the second section of the table, we find that somewhat similar conditions maintain among elementary school principals with the not- able difference that men principals are propor- tionately equally numerous under the two systems of salaries. Here again we find that even in the " equal pay " cities, the men in actual practice re- ceive distinctly higher salaries than the women, the difference amounting to 34 per cent, in favor of 104 the men. In the case of the " non-equal pay " cities, the men receive on the average salaries which are more than twice as high as those paid to women principals. Once more, as in the case of the high school teachers, it is noteworthy that the men re- ceive higher salaries in " non-equal pay " cities than they do in " equal pay " cities, and the women receive lower ones. The conclusions which it seems safe to draw from the foregoing study are the following : 1. A large part of all of the largest cities in the country employ no men teachers in their element- ary schools. This is true in cities having " non- equal pay " systems as in those having " equal pay " systems. 2. Cities having " equal pay " systems have pro- portionately as many men employed as high school teachers and elementary principals as do cities having " non-equal pay " systems. 3. Even under " equal pay " systems women high school teachers and principals on the average receive lower salaries than do men. 4. In general men are paid higher salaries and women are paid lower salaries in " non-equal pay " systems than they are in " equal pay " systems. " Equal Pay for Equal Work." The struggle of the women teachers of New York City for " equal pay for equal work " has 105 been waged for nearly half a century. In July, 1862, Miss Susan B. Anthony offered a resolution at a session of the New York Teachers' Associa- tion to the effect that " Justice requires that the amount of compensation should not be regulated by sex, but by the amount of service rendered." The agitation for the recognition of this principle has been revived from time to time ever since, and has been particularly active since the passing of the Davis Law in 1900. The general interpretation of the slogan " equal pay for equal work " given by its advocates, is that there should be but one salary for one and the same position. Its particular interpretation is that men and women should be paid the same wage when employed in the same position. The validity of the plea seems to depend on the interpretation of the term " equal work." If this is considered in the case in point as being synony- mous with " work of the same value to the school sj^stem," we hold that the justice of the demand is clear because the City as employer and as trustee of the people's money is not justified in paying one person a greater wage than it pays a second person, unless the services of the first are worth more to it than the services of the second. If this principle is valid, the City is not justified in paying a man more than it pays a woman unless the services of the man are worth more than the 106 services of the woman. The practical question then which confronts us is when, if ever, are the services of a man worth more than the services of a woman when both are employed in positions of the same grade. The answer to this question, arrived at by the Commission, is that the services of a man are worth more than the services of a woman employed in a position of the same grade, only when the man's masculine traits as such possess a money value. The next question is whether or not this condi- tion maintains in the teaching positions, and if so, where? The judgment of the Commission is that such a condition does maintain in certain of the teaching positions, and does not in others. It holds that the positions where this condition does main- tain are those where the training and teaching of the older boys are involved. As reviewed in the section entitled " The Need for Men Teachers," the Commission has secured opinions from more than 100 of the leading edu- cators of America as to the need for men teachers in elementary schools. The practically unanimous conviction of these experts is that men teachers are necessary for the proper training of the older boys and that they are necessary because of their masculine traits. The members of the Commis- sion are unanimously in accord with this opinion, holding that the best interests of our educational 107 system demand that there shall be in the schools a sufficient number of men teachers so that every boy may come under the influence of a man in- structor before completing his school course. At the present time the men teachers in New York are mostly employed in teaching boys' classes in the upper grades of the elementary schools and in the high schools. In order to retain men teachers for these grades they must be paid higher salaries than it is necessary to pay satisfac- tory women teachers of girls of corresponding grades, because they can earn more in other occu- pations or in the teaching profession in other localities. The Commission proposes that this situation be met by paying larger salaries for the teaching of boys in the upper grades and high schools than for the teaching of girls and the younger boys, men being preferably employed in these positions. But should it be necessary to employ women, they should receive the same salary as men. In the same way a man assigned to the teaching of girls would receive the same salary as a woman doing the same work. Under this plan teachers of special subjects would be assigned to positions and paid according to the work done, not according to sex. For ex- ample, teachers of physical training might be grouped in two classes, which might be designated 108 as "Class A" and "Class B." Teachers of " Class A " would be teachers able to conduct classes in such subjects as folk dancing, corrective gymnastics, games and organized play, while teachers of " Class B " would, in addition to the above, be required to demonstrate their ability to teach classes in running, swimming, jumping, football, baseball, boxing and competitive athletics. Here the differentiation of salary would be on the basis of work done, not on that of sex. This brings us to the consideration of the second class of positions, or those in which, according to the judgment of the Commission, the men's masculine traits as such do not possess a money value. Chief among these positions are the prin- cipalships of schools. These positions are largely administrative in nature. At the present time the larger schools and those containing all the grades from the lowest to the highest are largely in charge of men principals, while the smaller ones and those having the lower grades only are largely under women principals. In corroboration of the opinion of the Commis- sion in this matter it is important to note that in his Tenth Annual Report Superintendent Max- well wrote as follows: " With regard to women principals it must be quite clear to any one familiar with the Board of Examiners, that it is quite as difficult to obtain women principals of the requisite 109 scholastic and professional attainments and execu- tive ability as it is to obtain men principals. On this ground I recommend that as soon as money is available the salaries of women principals be equal- ized with those of men." In the opinion of the Commission, the factor which should decide the amount of salary paid in these positions should be the size of the school, not the sex of the principal. Principals of large schools containing many classrooms should be paid more than principals of small schools. If women are found who possess administrative, executive and supervisory qualities in such high measure that the educational authorities deem them best fitted to have in charge the large schools, they should be paid the corresponding salaries, but if they are better fitted for work in the smaller schools, they should be assigned to them and paid accordingly. The same rules should apply to the men. In each case the individual best fitted for the position should be assigned to it and paid accordingly. This practice is now followed in the case of the New York high schools. To summarize : The Commission approves of the payment of salaries on the basis of position. 1. Salaries paid for the teaching of boys in the upper grades and high schools should be higher than those paid for the teaching of girls and the 110 younger boys, and should be sufficiently high to attract and hold men teachers. 2. Salaries paid to the teachers of special sub- jects should be regulated according to the kind of work done. 3. The salaries of principals of schools should be graduated according to the size of the school. Ill PART III. CONCLUSIONS, SCHEDULES, COST COMPUTATIONS AND RE- COMMENDATIONS. CHAPTER VII.— CONCLUSIONS. 1. The present multiplicity of salary schedules constitutes a most fertile source of discontent, dis- couragement and administrative difficulty. This condition should be removed by reducing the schedules to the lowest practicable number. Our proposed schedules are presented with this end in view; they number thirty-nine as contrasted with the present list of eighty-five salary schedules. 2. Conditions of justice and of expediency lead us to the conclusion that salaries should be based on position. This can be brought about without the reduction of present salaries, without reducing the number of men employed, and without in- creased cost. Although we find that numerous in- creases are desirable, a salary based on position does not of itself entail increased expense. It con- sists in defining the work to be done for a given salary and assigning teachers to do that kind of work. The change is one of nomenclature, not one of salary rates. The plan which we recommend to bring about payment on the basis of position with- out increased cost is, in brief, as follows : a. One salary schedule for the payment of teachers of all children from the kindergarten through the sixth grade and of girls in the seventh 115 and eighth grades. This schedule to provide for salaries substantially equal to those now paid to women teachers in the elementary grades. b. One salary schedule for the payment of teachers of boys in the seventh and eighth grades. This schedule to provide for salaries substantially equal to those now paid to men teachers in the elementary schools. c. Salary schedules for the payment of element- ary principals graduated according to the size of the school. d. Salaiy schedules for teachers of special branches based on the kind of work done. In those branches where some of the teachers do work of a supervisory nature, salary schedules should be divided so as to make possible additional remuner- ation for this more difficult work. This situation occurs in the cases of teachers of music, physical training and sewing and inspectors of public school athletics. e. One salary schedule for the payment of teachers of girls in high schools. This to provide for salaries substantially equal to those now paid to women teachers in high schools. /. One salary schedule for the payment of teachers of boys in high schools. This to provide for salaries substantially equal to those now paid to men teachers in high schools. 116 3. Since the adoption of the present salary schedules there has been a sharp advance in the cost of living and a general increase in teachers' salaries in other cities. These conditions lead us to believe that teachers' salaries in this city should be increased, especially in the following cases : a. Since our investigations have convinced us that the beginning wage of $600 per annum now paid in the elementary schools is not a reasonable living wage for a public school teacher in this city, we believe that an increase in those salaries to $720 is of the first importance. b. The salaries now paid to clerks or additional teachers appear to be inadequate in amount and regulated according to an unfair system. We believe that they should be increased, that they should be put on an annual basis and that increases should be given as rewards for continued efficient services. c. The welfare of the school children rather than financial economy should be the consideration of first importance in the appointment of teach- ers. For this reason we believe that the wage paid to substitute teachers should be so advanced that it will no longer be possible to effect any consider- able saving by employing the services of substi- tutes rather than those of regular teachers. d. The salaries paid to high school teachers in other cities are more nearly equal to those paid in 117 New York than are the salaries paid in other posi- tions. This is notably true in the cases of the neighboring cities, Newark and Jersey City, where the high school teachers are now receiving nearly as much as those in our city, and in some cases more. For these reasons, we believe that there should be general increases in the salaries of high school teachers. 4. Simplicity and ease of administration, as well as increased efficiency on the part of teachers would, in our opinion, be promoted through in- creased use of the bonus plan for paying teachers for special and additional services. Moreover, this would avoid increasing the number of schedules. 5. In those schedules which provide for the pay- ment of teachers entering the service of the City for the first time, we have throughout recom- mended that the initial salary remain unchanged during the probationary period of three years. Our purpose in making this recommendation is to provide a scheme of salary schedules which shall avoid the payment of increments to a large number of teachers who leave the service in the first three years, and in connection with this feature, we be- lieve that there should be enforced a more efficient system for thoroughly testing candidates during the probationary period and dismissing from the service those whose work is unsatisfactorv. 118 6. We have purposely recommended no in- creases or changes in salary schedules for city, associate and district superintendents, members of the Board of Examiners, principals of high and training schools, principals and teachers of evening and vacation schools, vacation playgrounds and recreation centres, and certain positions in schools for the deaf, blind and truant. In all of these positions, we believe the salary schedules now in force should remain unchanged. 119 CHAPTER VIII.— SCHEDULES, PRES- ENT AND PROPOSED. Superintendents and Examiners. Schedule Number. Suj)erintendents — Present schedule : City Superintendent, $10,000 per annum. Associate City Superintendent, $6,500 per annum. District Superintendent, $5,000 per annum. Member Board of Examiners — Pres- ent schedule: $6,000 per annum. 1, 2, 8, 4. Proposed schedule: No change. Elementary Schools (Regular Teachers). Schedule Number. la. Principals (Women) — Present schedule: $1,750, increasing to $2,- 500 in three increments of $250. lb. Principals (Men) — Present sched- ule: $2,750, increasing to $3,500 in three increments of $250. 120 Schedule Number. Ila. Principals (Women) — P resent schedule: In schools from six to twelve classes and women assistant principals $1,400, increasing to $1,- in two increments of $100. lib. Principals (Men) — Present sched- ule: In schools from six to twelve classes and men assistant principals $2,100, increasing to $2,400 in two increments of $150. III. Elementary Teachers (Women) — Present schedule: In grades from kindergarten to 6B, inclusive, $600, increasing to $1,240 in sixteen in- crements of $40. IV. Elementary Teachers (Women) — Present schedule: In grades from 7 A to 8A, inclusive, $600, increas- ing to $1,820 in fifteen increments of $48. V. Elementary Teachers (Women) — Present schedule: In grade 8B $986, increasing to $1,440 in six in- crements of $84. 121 Schedule Number. VI. Elementary Teachers (Men) — Pres- ent schedule: In all grades below 8B $900, increasing to $2,160 in twelve increments of $105. VII. Elementary Teachers (Men) — Pres- ent schedule: In grade 8B $1,500, increasing to $2,400 in six incre- ments of $150. Proposed schedules — 5. Principals of schools one to ten rooms $2,000, increasing to $2,- 500 in five increments of $100. 6. Principals of schools of eleven to thirty rooms $2,500, increasing to $3,000 in five increments of $100. 7. Principals of schools of thirty-one to fifty rooms $2,500, increasing to $3,500 in five increments of $200. 8. Principals of schools of fifty-one rooms or more $3,000, increasing to $4,000 in five increments of $200. .... Assistants to Principals — Proposed bonus: Regular grade teachers appointed annually and receiving a bonus of $300 over regular grade salaries. 122 Schedule Number. 9. Teachers of all classes from the kin- dergarten through the sixth grade and of classes of more than 50 per cent, girls in the seventh and eighth grades $720 for the first three years, increasing to $1,440 in fif- teen increments of $48. 10. Teachers of classes of more than 50 per cent, boys in the seventh and eighth grades and teachers of shop work $900 for the first three years, increasing to $2,400 in four incre- ments of $125. Teachers of ungraded, C, D, E, crip- pled and blind classes an annual bonus of $100. Elementary Schools (Teachers of Special Branches). Schedule Number. XVIa. Music and Drawing (Women) — Present schedule: Women teach- ers of music and drawing $1,000, increasing to $1,400 in four incre- ments of $100. 123 Schedule Number. XVIb. XVIIa. XVIIb. XVIII. XlXa. Music and Drawing (Men) — Pres- ent schedule: Men teachers of music and drawing $1,200, increas- ing to $1,600 in four increments of $100. Physical Training (Women) — Pres- ent schedule: Women teachers of physical training $900, increasing to $1,200 in three increments of $100. Physical Training (Men) — Present schedule: Men teachers of physical training $1,200, increasing to $1,- 600 in four increments of $100. Cooking and Sewing — Present sched- ule: Teachers of cooking and sew- ing $900, increasing to $1,200 in three increments of $100. French, German, Spanish and Italian (Women) — Present schedule: Women teachers of French, Ger- man, Spanish and Italian $1,000, increasing to $1,400 in four incre- ments of $100. 124 Schedule Number. XlXb. French, German, Spanish and Italian (Men) — Present schedule: Men teachers of French, German, Span- ish and Italian $1,200, increasing to $1,600 in four increments of $100. Proposed schedules — 11. Teachers of music, physical train- ing, drawing and sewing and in- spectors of public school ath- letics : Grade A — $1,000 for three years, increasing to $1,600 in six incre- ments of $100. Grade B— $1,600 for three years, increasing to $2,400 in eight in- crements of $100. 12. Teachers of cooking and foreign languages $1,000 for three years, increasing to $1,600 in six incre- ments of $100. 125 Elementary Schools (Directors of Special Branches). Schedule Number. Xlla. Directors — Present schedule: Men directors of music, manual training and drawing, and physical training $3,500, increasing to $4,000 in five increments of $100. Xllb. Directors — Present schedule : Women directors of music, manual training and drawing, and physical training $2,500, increasing to $3,- 000 in five increments of $100. XII la. Assistant Directors — Present sched- ule: Men assistant directors of music, manual training and draw- ing, and physical training $2,500, increasing to $3,000 in five incre- ments of $100. XI I lb. Assistant Directors — -Present sched- ule: Women assistant directors of music, manual training and draw- ing, and physical training $2,500, increasing to $3,000 in five incre- ments of $100. 126 Schedule Number. XIIIc. Inspectors of Public School Athletics — Present schedule: Men inspec- tors of public school athletics $2,- 000 per annum. XI lid. Inspectors of Public School Athletics — Present schedule: Women in- spectors of public school athletics $1,500 per annum. Xllle. Assistant Inspectors of Public School Athletics— Present schedule: Men and women assistant inspectors of public school athletics $1,200 per annum. XIV. Directors of Kindergartens — Present schedule: $2,500, increasing to $3,- 000 in five increments of $100. XV. Directors of Cooking and Sewing — Present schedule: Directors of cooking and sewing $2,500, increas- ing to $3,000 in five increments of $100. Proposed schedules — 13. Directors' of music, manual train- ing and drawing, and physical training $3,500, increasing to $4,000 in five increments of $100. 127 Schedule Number. 14. Schedule Number. Villa, and VHIb. 15. IXa. IXb. Directors of kindergarten, cooking and sewing, and assistant direc- tors of music, manual training and drawing and physical train- ing $2,500, increasing to $3,000 in five increments of $100. High Schools. Principals — Present schedule: In schools having twenty-five or more teachers $5,000 per year. In schools having less than twenty-five teach- ers $8,500 per year. Proposed schedule: No change. Junior Teachers (Women) — Present schedule: Female junior or substi- tute teacher, female laboratory or library assistant, or female clerk $700, increasing to $1,000 in six in- crements of $50. Junior Teachers (Men) — Present schedule: Male junior or substi- tute teacher or male laboratory or library assistant or male clerk $900, increasing to $1,200 in six in- crements of $50. 128 Schedule Number. IXc. Assistant Teachers (Women)— Pres- ent schedule: $1,100, increasing to $1,900 in ten increments of $80. IXd. Assistant Teachers (Men)— Present schedule: $1,300, increasing to $2,- 400 in ten increments of $110. IXe. First Assistants (Women)— Present schedule: $2,000, increasing to $2,- 500 in five increments of $100. IXf. First Assistants (Men)— Present schedule: $2,500, increasing to $3,- 000 in five increments of $100, 16. Proposed schedule: Teachers of classes of more than 50 per cent, boys $1,500 for three years, in- creasing to $3,000 in twelve incre- ments of $125. 17. Proposed schedule: Teachers of classes of more than 50 per cent, girls $1,000 for three years, in- creasing to $2,500 in twelve incre- ments of $125. Proposed bonus: Chairman of De- partment, regular teacher's salary plus bonus of $200. 129 Schedule Number. .... Proposed bonus: Teachers in charge of annex, regular teacher's salary plus bonus of $500. 18. Proposed schedule: Clerical and library assistants $900 for three years, increasing to $1,200 in three increments of $100. 19. Proposed schedule: Laboratory as- sistants same schedule as teachers. Training Schools. Schedule Number. X. Principals — Present schedule: Same as for high schools. 20. Proposed schedule: No change. XIa. Teachers — Present schedule : Library Xlb. assistants, women and men; assist- Xld. ant teachers, women and men; and Xle. first assistants, women and men; Xlf. are now paid the same salaries as Xlg. the corresponding teachers in high school. This includes laboratory assistants. 21. Proposed schedule: Same as pro- posed schedules for high schools plus an annual bonus of $100 in all positions. 130 Model Schools. Schedule Number. Xa. Principals — Present schedule: $2,- 250, increasing to $3,000 in three increments of $250. 22. Proposed schedule: Same salary as principal of elementary school of thirty-one to fifty rooms. XIc. Model and Critic Teacher — Present schedule: $1,000, increasing to $1,- 500 in five increments of $100. 23. Proposed schedule: Same as for teachers in elementary schools plus an annual bonus of $100. Special Schools. Schedule Number. XX. Evening Schools — Present schedule: Per Evening. Principals of high schools $7 00 Assistants in high schools 5 00 Laboratory assistants in high schools 3 00 Principals of elementary schools 5 00 Supervisors of special subjects 6 00 131 Schedule Per Number. Evening. Assistants in elementary schools 3 00 General assistants and heads of departments. 3 00 Teachers in charge of ele- mentary schools 4 00 Junior teachers in high schools 3 00 XXI. Vacation Schools — Present schedule: Per Day. Supervisors' $6 00 Principals 4 50 Teachers 3 00 Kindergartens 3 00 Kindergarten helpers. ... 1 50 XXII. Vacation Playgrounds and Recrea- tion Centers — Present schedule: Per Day. Supervisors $6 00 Per Session. Principals' $4 00 Teachers 2 50 Assistant teachers 1 75 Teachers of swimming. . 2 00 Librarians (playgrounds) 1 75 132 Schedule Number. XXIII. XXIV. XXV. XXVI. XXVII. Per Session. Librarians (recreation centers) 2 50 Pianists (playgrounds).. 1 75 Pianists (recreation centers) 2 00 Inspectors of Playgrounds and Rec- reation Centers — Present schedule: $1,500, increasing to $1,750 in five increments of $50. Principals of Truant Schools — Pres- ent schedule: Principal of a truant school if boarded and lodged $1,- 800, increasing to $2,100 in three increments of $100. Principals of Parental Schools — Present schedule: Principal of the parental school if boarded and lodged $2,700, increasing to $3,000 in three increments of $100. Teachers in Truant Schools — Present schedule: Men teachers in truant schools $900, increasing to $1,800 in twelve increments of $75. Principals of Schools for Deaf — Present schedule: $2,250, increas- ing to $3,000 in three increments of $250. 133 Schedule Number. XXVIII. XXIX. XXXa. XXXb. XXXIa. XXXIb. 24. 25. Teachers in Schools for Deaf — Pres- ent schedule: $800, increasing to $1,500 in seven increments of $100. Inspectors of Classes for Blind — Present schedule: $1,800, increas- ing to $2,400 in six increments of $100. Principals of Vocational Schools (Women) — Present schedule: $3,- 000, increasing to $3,500 in two in- crements of $250. Principals of Vocational Schools (Men) — Present schedule: $3,500, increasing to $4,000 in two incre- ments of $250. Teachers in Vocational Schools ( Women ) — P resent schedule : $900, increasing to $1,575 in nine increments of $75. Teachers in Vocational Schools (Men) — Present schedule : $1,200, increasing to $2,190 in nine incre- ments of $110. Proposed schedules — Evening Schools — No change. Vacation Schools — No change. 134 Schedule Number. 26. Vacation Playgrounds and Recrea- tion Centers — No change. 27. Inspectors of Playgrounds and Recreation Centers — No change. 28. Principals of Truant Schools — No change. 29. Principals of Parental Schools — No change. 30. Teachers in Truant Schools — Present schedule to apply to both sexes. 31. Principals of Schools for Deaf — No change. 32. Teachers in Schools for Deaf —No change. 33. Inspectors' of Classes for Blind — No change. 34. Principals of Vocational Schools — Same as principals of high schools. 35. Teachers of Vocational Schools — Same as teachers of boys in seventh and eighth grades of ele- mentary schools. 135 Substitutes. Present schedule — Per Day. Ungraded classes $3 00 Elementary teachers (men) 3 00 Elementary teachers (women) 2 50 Teachers of music, draw- ing, physical training and shop work (men) . 4 00 Teachers of music, draw- ing, physical training and shop work (women) 3 50 Teachers of cooking and foreign languages (men) 3 00 Teachers of cooking and foreign languages (women) 2 50 Per Evening. Teachers in evening high schools $3 00 Teachers in evening ele- mentary schools 2 00 Teachers in evening high schools (trade) 5 00 136 Schedule Number. Per Day. Teachers in vacation schools 1 50 Teachers in truant and parental schools 3 00 Teachers in vocational schools (men) 5 00 Teachers in vocational schools (women) 4 00 Proposed schedules — 36. Ungraded, elementary, music, drawing, phys- ical training and shop work, cooking and foreign languages, evening high schools, truant and parental schools $4 00 37. Evening elementary and vacation schools 2 00 38. Evening high schools (trade) and vocational schools 5 00 137 Clerks or Additional Teachers. Schedule Number. Present schedule: $3 per day. 39. Proposed schedule: $600, increasing to $1,000 in eight increments of $50. 138 CHAPTER IX.— ESTIMATED COST. We have estimated the more important items in the increased cost of the proposed schedules, using as a basis the number of persons on the pay- roll in each position in May, 1909. This is the same basis on which the Board of Education Bud- get for the year 1910 was estimated. In all places where doubt has arisen as to the interpretation of our proposed schedules, we have based our esti- mate on the more expensive interpretation. It is impossible to state what new assignments of teachers to positions might be made by the Board of Education if our new schedules were adopted, and hence impossible to estimate exactly how much of the increases would be received by women and how much by men. However, we pre- sent the following figures as being the closest esti- mate which we have been able to make of the total increased cost and of its distribution among the representatives of the two sexes. The estimate for the elementary schools is based on the assumption that men teachers now in grades below the seventh, will be transferred to work in the seventh and eighth grades. 139 O ^3 00 c3 O M Cl M 13 •n ° -3 c^ f-l (1) O o CO rrt 02 o © oT © o co © c3 0) Cm d CD H5 «5 o3 CI 0> 0) I— I o3 Ph •p-H o Ci • i— i Ph 8 I © ©^ 00 M5 ^ ■"* 00 ^L ° © i>" CO 00 b- oo tH CO Wi o ^ O o © co o H 03 CI a MS CO O O o o CO CO O O -a O CO © 00" r* CO (M 1-4 «* O © ^ © © CO r-T oT co © iH CO 02 4> -8 d 03 f-H PQ •i— i W © rH © GO 3t> © © © © © © © © © © GO rH © rH © © © W5 © CO © GO CO fc- © © i>- J> CO (M K5 © ^ CN © © © © CO rH o3 02 o fl «W • i— i &o _g +j r— i i — i o3 03 -M -H o o H H 142 CHAPTER X— RECOMMENDATIONS. The Commission submits for the consideration of the Board of Estimate and Apportionment the following recommendations : The amendment of section 1091 of the Greater New York Charter so as to secure 1. No decrease in present salaries; 2. Certain increases in minimum and maximum salaries and in annual increments ; 3. Reduction in the number of salary schedules ; 4. Salary for position. C. L. Rossiter, Lee K. Frankel, Leonard P. Ayres, James M. Gifford, (Mrs. Frank H. Cothren) Marion B. Cothren. 143 N