i [Jl«fl s? REPORT oi a Survey of me Scnool System of Butte, Montana Authorized by a Resolution or the Board of Sckool Trustees May 5, 19 14 SUBMITTED TO THE BOARD OF SCHOOL TRUSTEES. JUNE 2. 1914 =*• REPORT of a SURVEY of the SCHOOL SYSTEM of BUTTE, MONTANA ILjcz:'^ / /^^ URVEY COMMISSION George Drayton Strayer, Professor of Educational Administration, Teachers College, Columbia University, New York. Director of the Survey. Frank P. Bachman, Educational Expert to the Board of Estimate and Apportionment, New York City. Ellwood P. Cubberley, Professor of Education, Leland Stanford Junior University, California. William T. Bawden, Managing Editor of Vocational Education. F. J. Kelly, Director of the Training School, State Normal College, Emporia, Kansas. Submitted to tlie Board of ScKool Trustees. June 2. 1914 ■b 0. «' u. ''W« 83 i^^ ^ <4 V j THE INITIATION AND AUTHORIZATION { OF THE SURVEY In an extended communication to the Board of Trustees under date of April 27, 1914, Superintendent of Schools Geo. F. Downer proposed that the Board of Trustees authorize an expert survey of the schools of District No. i. This recommendation was considered by the Committee on Teachers and School Man- agement, which, on the same date, offered for the consideration of the Board, a body of resolutions on various subjects, closing with the following paragraph : (6) That in order to create the most favorable conditions possible for increasing the efficiency of the public schools of this district, the Board immediately investigate the plausiblity -of liaving made here such an expert examination of the schools of the District as has been suggested by the superintendent in the attached letter. Such surveys have recently been made in Port- land, Oregon, and Boise, Idaho, and if such a survey is made of the Butte schools, we hereby resolve to publish the results in full and to abide by the recommendations of the experts, wherever possible. The resolutions were signed by C. R. Hopkins, P. S. Har- rington and M. J.^Rozsa, members of the Teachers and School Management Committee, and were passed, unanimously, by the Board, all trustees being present. At its next meeting the following resolution was introduced b}^ the Laws, Rules and Regulations Committee : Resolved, that a survey be made of the schools of School District No. One, by Dr. George B. Strayer of Teachers' College, Columbia University, New York City ; Dr. Ellwood Cubberley, head of the Department of Education. Leland Stanford Univer- sity, and Dr. Frank P. Bachman of New York City and two as- sistants. Such survey to commence as soon as practicable, and there is hereby appropriated and set aside from the General Fund of the said School District the sum of Four Thousand ($4,000) Dollars to pay the expense of said survey and for the cost of a report from the said persons to the Board of Education as to the conditions of the said schools. C. R. HOPKINS, LOWNDES MAURY. On roll call Trustees E. D. Elderkin, P. S. Harrington, C. R. Hopkins, E. F. Maginn, H. L. Maury and M. J. Rozsa voted Aye. Trustee C. R. Wallace voted No. TABLE OF CONTENTS TABLE OF CONTENTS Introduction to The Report. The invitation to make the survey — The plan of work — Co-operation invited — ^Discussion encouraged — The actual conduct of the survey. THE INSTRUCTIONAL PROBLEM. CHAPTER I.— THE CLASSIFICATION AND PROGRESS OF PUPILS - 9 Population — Character of population — Holding power of the schools — Progress of children in school — Children over-age, normal age and under-age — Degree of retardation — Special classes — Elementary summer school — Promotion and non-promotion — Reducing non- promotions — Failure by studies — Size of classes in ele- mentary schools — Sizes of sections in high school — Failure by studies in high school- — Summary. CHAPTEJR. II.— THE QUALITY OF INSTRUCTION 37 General principles — The survey of the quality of teaching in Butte — Standards for judging the qualit)^ of instruction — The purposes of education — The drill les- son — Lessons' involving thinking — Lessons for appre- ciation—Teaching children to study — ^Social phases of school work — Discipline and management — The quality of the teaching done in Butte — Greater efficiency possi- ble — Good work seen — Effect of the examination sys- tem — More appreciative teaching needed — Summary. CHAPTER III.— THE COURSES OF STUDY 47 New conceptions of education — The present courses of study — Fundamental needs — Lack of kindergartens — The work in arithmetic — Language work — Reading and literature — Home reading books — History and civil government — Geography — Nature study and science in- struction — ^Spelling — Writing — Music — Drawing — Play and physical training — The manual and household arts — ■ The intermediate school — Possible courses for the in- termediate school — The high school courses of study. CHAPTER IV.— THE ACHIEVEMENTS OF PUPILS. .-. 69 Methods of measuring school achievements — The spelling tests — Word lists used^The scoring of the papers — Results — Composition test — Scoring — Typical compositions — Results — Penmanship tests — Scoring and Results — Arithmetic tests — Lists of examples used — Scoring and results — Summary. TABLE OF CONTENTS CHy\PTER v.— THE SUPERVISION OF INSTRUCTION.... 97 The work of the supervisory corps — Demonstration of methods of teaching- — The criticism of instruction — Co-operation of teachers in developing school policies — Measurement of the achievement of pupils — Standard tests of instruction — Teacher and supervisor — The primary supervisor — The superintendent as a super- visor — His relation to the board of school trustees — The further training of principals. CHAPTER VI.— ADAPTATION OF SCHOOLS TO COM- MUNITY NEEDS - 102 New types of instruction — Kindergartens — Special classes for special groups — Night schools — ^Classes in English for foreigners — The wider use of the school plant — Facilities for play— Physical welfare of children — Probable conditions — Types of health supervision — The school nurse — The teacher and health supervision — Instruction in hygiene and play supervision. PART n. THE ADMINISTRATIVE PROBLEM. CHAPTER VII.— ADMINISTRATION OF THE SCHOOLS.... 110 State origin of schools — State control of schools — School districts of the first class — Large powers of the state — Limitations of state control for city school sys- tems — The problem of the board of school trustees — Proper official relations — The board's proper functions Fundamental administrative principles. CHAPTER VIII.— SELECTION. TRAINING, TENURE AND SALARIES OF TEACHERS : 117 The preparation for teaching of the present corps — Recommendations for further professional training of teachers and principals — A four-week summer school for teachers in Butte — ^Teachers paid a month's salary for attendance — Probable cost of a summer school — The salaries of teachers — Comparative salary schedules in western cities — Minimum and maximum salaries rec- ommended — Increases dependent upon further profes- sional tiaining — A probationary period for inexperi- enced teachers — Special salaries for training teachers and teachers of classes for backward children — The salaries of high school teachers — General principles gov- erning salary schedules. TABLE OF CONTENTS CHAPTER IX.— SCHOOL BUILDINGS AND EQUIPMENT 124 Recent surveys — School sites desirable and unde- sirable — 'Types of buildings found — Square construc- tion — Defects in existing- buildings — Typical class rooms — Proper type of class room — Proper type of building — Educational needs to be provided for — 'Possible building reorganization — Larger units of construction — An inter- mediate school — New high school — Janitor service. CHAPTER X.— CENSUS, RECORDS AND REPORTS 135 The present school census — Improving and amend- ing the school census — Information to collect — Time to take the census — Card census file — Keeping the census file up-to-date — Educational use of the census — En- forcing the compulsory education law — Present effect- iveness of the attendance service — School records needed — The teachers register or blotter — The teachers register — Report of principal to attendance officers and to superintendent — Report of attendance officers to superintendent — Necessary co-operation — Simplifying school records — Summary. CHAPTER XL— COSTS AND FINANCIAL RECORDS 143 Attempts to estimate costs — Table of comparative costs — Need of a better system of accounting — What an adequate system of accounting would reveal — Suggested forms for school accounting. SUMMARY, CONCLUSIONS AND RECOM- MENDATIONS. Appendix. Blank forms used in gathering data: i. Size of classes — 2. Enrollment promotion and failures by stud- ies — 3. Education and experience of teachers — 4. Ages of children in the different classes. TABLE. OF CONTENTS LIST OF TABLES Page Table 1 — Composition of the population of Butte 9 2 — Percentage of children in Butte and other cities 11 " 3 — Public school enrollment and census compared 13 " 4 — Children dropped from the elementary schools 14 5 — Age-distribution of the children in the elementary schools IS " 6 — Age-grade of elementary school pupils 18 " 7 — Under-age, normal, and over-age pupils 19 " 8 — Degree of overageness in the schools 22 " 9 — Age of entrance to high school 24 " 10 — Promotion and non-promotion 27 " 11 — Failures by studies. 31 " 12 — Number and size of recitation sections 33 " 13- — Failures in high school, by subjects 35 14 — Standings of school grades in spelling 71 " IS — Distributions of composition scores 74 " 16 — Distributions of penmanship scores. 80 " 17 — Distributions of results in addition and subtraction 87 " 18 — Distributions of results in multiplication and division, 87-88 " 19 — Distributions of scores in reasoning test 88 " 20 — Comparison of Butte with other cities in arithmetic 91 " 21 — Education and training of teachers 117 " 22 — Comparative salary schedules in western cities 120 " 23^ — Attendance in two typical elementary schools 138 " 24 — Comparative costs of education... 144 LIST OF GRAPHS AND ILLUSTRATIONS Figure 1 — Composition of the population of Butte.... 10 2 — Age distribution of the total population 11 " 3 — Pupils under-age, normal, and over-age 21 " 4 — Over-age pupils behind their grades 23 " 5 — Percentage of non-promotion 28 " 6 — Results of spelling tests 72 " 7 — Results of composition tests 75 " 8 — Results of penmanship tests 82 " 9 — Results of multiplication tests .-.-. PO " 10 — Butte compared with other cities in addition and sub- traction 92 " 11 — Butte compared with other cities in multiplication and division 93 " 12 — Results of arithmetic tests using problems involving reasoning 95 " 13 — Proposed organization of the public school system of Butte 114 " 14 — A typical school building in Butte 124 " 15 — A typical class-room in Butte 126 TABLE OF CONTENTS Page Figure 16 — Proper arrangement of a ciass-room 127 17 — A well-lighted school building 128 18 — Basement plan of a desirable type of school building 129 19 — First-floor plan of a desirable tj'pe of school building.... 130 20 — Second-floor plan of a desirable type of school building, 131 LIST OF RECOMMENDED FORMS Form 1 — School census book.... Opposite 135 2 — School census card ; 3 — Census-file report , 4 — Attendance and scholarship card 5 — Report on absence 6 — Principal's monthly report on absent pupils. 7 — Monthly report of attendance officer 136 137 139 140 140 140 8 — Standard financial report Last Inserted Fori REPORT OF THE SURVEY STAFF INTRODUCTION. The survey of the Butte pubhc school system was undertaken upon the invitation of the Board of School Trustees and the Superintendent of Schools. In extending their invitation to the director of the survey, the Board agreed that he should choose his associates from among those whom he considered best quali- fied for the work in hand, and assured him that the report would be published as written, without amendment or editorial change. The time allowed for the work was four weeks, and it was agreed that the cost to the Board of School Trustees for the salaries and expenses of the survey commission should not exceed four thou- sand dollars. At their first conference concerning the work to be done, the members of the commission agreed that it was the purpose of the survey to acquaint the Board of School Trustees and the citizens of Butte with the conditions as they exist in the public school system, with respect to the school plant and its equipment, the methods of administration and supervision of the schools, the instruction and courses of study, the training, tenure and present efficiency of the teaching corps, and the classification, progress and achievements of children in the school system, together with such recommendations as might seem to them to be justified in the light of the facts which they might be able to collect, or observa- tions which they might make. The members of the commission agreed that they would seek to place clearly before those who might read their report the achievements of the school system, or, in other words, its present strength, the needs of the school system as determined by whatever inadequacy might be found to exist, and the policies which, in their judgment, should furnish a program for future development. In the actual conduct of the survey, emphasis has been placed throughout upon the possible service which should be rendered by the school system to all members of the community. Since the school system, as at present organized, deals almost exclu- sively with the education of children between the ages of six and twenty years of age, the greater part of this report will be found to be devoted to a consideration of the education now offered to these children, together with such recommendations as seem, to the members of the commission, to promise improvement in the conditins under which this education is offered, or in the results which may be secured. The report has not neglected, however, to consider the problem of the education of children under six years of age, and the possible wider use of the school plant for the education of those who are beyond compulsory school age and not now in attendance in the school system. The general plan for the work of the survey commission had been thoroughly discussed and outlined by the time its mem- bers reached Butte. As soon as possible after reaching the citv, conferences were held with the superintendent of schools, with INTRODUCTION TO REPORT the board of school trustees, and aU of the teachers of the school system. The members of the commission profited largely from these meetings. They have felt throughout their work that their understanding of the local school situation depended in large measure upon the free and frank discussion which they were able to enjoy with those interested in the welfare of the school system. In the conference with teachers, the position of the survey commisson with respect to individual members of the teaching corps was made clear. Some of the teachers had felt before that meeting that the survey was intended to report upon the qualifications of individual teachers, in order that the board of school trustees might be informed, and might, upon recom- mendation of the commission, either re-hire or dismiss individual teachers from the school system. In this report recommendations are made with respect to the further training of teachers, and the qualifications for those who may later enter the school system, but the commission has been careful not to express any opinion concerning any individual teacher or other employee of the board of school trustees. This position seems to them to be- funda- mental in all survey work done by specialists, called in from out- side the regular administrative or supervisory staff. The commission endeavored from the first to make it clear that they would be willing to discuss the needs of the school system with any representative body in the city who might care to invite them to meet for a discussion of these problems. During the course of the survey, they accepted invitations to attend meet- ings of the Silver Bow Trades and Labor Council, of the su[-er- visors and principals of the public school system, of the teachers' union, of the city parents' teachers' association, of the Woman's Club, and of the Chamber of Commerce. Upon the suggestion of some of the teachers who were interested in the tests given to children, a meeting of the whole teaching corps was held in order to acquaint teachers with the nature of the tests given, and to enable them to understand the methods used in scoring results. Another meeting of the teaching corps by grade groups v^as held for the discussion of problems peculiar to the different groups of teachers. As has already been suggested, the purpose of the survey had to do mainly with suggesting possibilities for improving the opportunities of the children in the public schools of Butte. To accomplish this end, all of the members of the commission spent the first week during which they were at work in Butte upon the survey, in visiting the class rooms. All of the schools in the city, except the rural schools, were visited, and every teacher's work was observed for a whole recitation or for such part of a recita- tion as was necessary to make clear to the observer the method of instruction employed by the teacher, and the results she was securing from the pupils. In connection with these visits, short conferences were held with teachers, and longer conferences, last- ing from one to three hours, were held with the principal of each INTRODUCTION TO REPORT school. During the whole time devoted to the'survey, each mem- ber of the commission visited at least seven schools, while one member of the commission visited twelve. After the careful observation of the quality of teaching had been completed, a systematic attempt was made to discover the quality of work done by pupils by giving to as many children as possible, tests which had been used in other school systems. Speci- mens of hand writing were collected from all of the children. Tests in spelling, arithmetic and English composition were given in at least ten schools, and in as many grades as time permitted. Such data as were available concerning the work of the school system, in the form of courses of study, text-books used, rules and regulations, and records to be found in the oflices of the superintendent of schools and the school clerk, were carefully studied. The courses of study were made the subject of several conferences, by all of the members of the commission. The forms in the superintendent's office, upon which were recorded the qualifications of teachers and their efficiency as reported by the principals of schools, were carefully read. In order to supplement data available in the superintendent's office, and in order to have a basis in fact for the judgments which the members of the commission felt called upon to render, special blanks were prepared and data were secured with reference to the training, experience, tenure, and salaries of teacher, the number of children per teacher in the school system, the ages of children in each grade of each school, the number of days of attendance for all of the children in two schools, the rate of promotion and non-promotion, together with the subjects in which pupils failed, by grades. As a result of a month's work, along the lines indicated above, the survey commission herewith present to the board of school trustees their report on conditions and needs, together with a constructive program for the future development of the school system of Butte. They cannot, of course, hope that all of their recommendations will be at once put into effect. Some of the recommendations clearly look to the future. It is, however, en- tirely possible for the board of trustees, with the support of the people of this school district, to carry all of the recommendations into effect within the next four or five years. Should this be done the commission feel that a very great improvement in the school system of Butte would result, — -an improvement which would do much to advance the best interests of the citizenship of the city. In presenting this report to the board of school trustees and to the citizens of Butte, the members of the commission wish to express their appreciation of the uniform courtesy and kindness which has been extended to them by the members of the board of school trustees, the superintendent of schools, the supervisorv corps, and the teaching staff, and by those citizens of Butte with whom it has been their good fortune to come in contact. PART I. THE INSTRUCTIONAL PROBLEM. CLASSIFICATION AND PROGRESS OF PUPILS. CHAPTER I. THE CLASSIFICATION AND PROGRESS OF PUPILS. Population of Butte and School Distict No. i. — The popula- tion of the City of Butte, as given in the census of 1910, was 39,165. School District No. i, comprising- a larger area than the city, has a population estimated at from 70,000 to 75,000. While there are no available data on the character of the population of District No. i, this probably differs little in character from the population of the city. Character of the Population. — The population of the City of Butte is characterized by the large percentage of native born with one or both parents foreign born, by the large percentage of for- eign born, by the small percentage of school children in proportion to the population, by the large percentage of active adult popula- tion between 25 and 40, and by the small percentage of mature citizens 65 years of age and older. Table i shows the composition of the population of certain western cities, chosen for comparison with Butte : TABLE I. Composition of Populatiok. Percent of the whole wlio are ,_^ -u CITY ^ 1 1 'rf e Bor h one h par erg-n 5) s s a Q .^■||S y, it. y. Butte, Montana | 39,1 San Diego, Cal ! 39, Berkeley, Cal ! 40, Davenport, Iowa | 43, Topeka, Kan | 43, Lincoln, Neb | 43. Pueblo, Colo 1 44, Sacramento, Cal I 44,' Sioux City, Iowa '.. ...i 47, Tacoma, Wash | 83, Spokane, Wash' | 104, The particular character of clearer by the following figure : the population is made even 10 SCHOOL SURVEY REPORT COMPOSITION OF POPULATION 'ANADIANS Composition of the Population of Butte. Seventy per cent of the population of Butte, it will be ob- served, IS of direct foreign descent or foreign born. An analysis of this foreign element shows, however, that it is, on the whole, of the very highest type, coming primarily from northern and western Europe. Nevertheless, the presence in the city of so many of foreign descent and birth makes the work of the schools especially difficult, and makes necessary certain adjustments in the school system to meet the particular educational needs of this portion of the population. The needed re-adjustments in courses of study, and needed provisions for special kinds of classes and schools, will be pointed out in the subsequent chapters of this report. While the number of children of school age in Butte com- pares favorably with other western cities, the number is mate- rially smaller than in eastern cities of similar size. Table II com- pares Butte with ten selected western and ten selected eastern cities, in the matter of children under 15 years of age: CLASSIFICATION AND PROGRESS OF PUPILS. II TABLE II. Percentage of Children to Population. City. Total Population, 1910 1. Western Cities. "^'Spokane, Wash *San Diego, Cal ^Berkeley, Cal Butte, Montana, Tacoma, Wash Lincoln, Neb *Topeka, Kan Pueblo, Colo *Des Moines, Iowa *Davenport, Iowa *Salt Lake City, Utah.. 2. Eastern Cities. 104,402 39,578 40,434 39,165 83-743 43,973 43,684 44,395 86,368 43,028 92,777 Percent of Children 5-14 13.0 134 14.7 15.1 15-2 15-3 15-5 16.4 16.6 16.7 18.5 0-15 23.2 20.0 22.8 23.9 23.6 2C 2 23-9 26.2 25-6 29.6 East Orange, N. J.... Butte,Montana, '"Springfield, Mass.... *Newton, Mass Scranton, Pa Fall River, Mass *New Rochelle. N. J. *Yonkers, N. Y .^.. Hoboken, N. J *^It. Vernon, N. Y .... *Bayonne, N. J 34.371 39,165 88,926 39,806 129,867 119..295 28,867 79,803 70,324 30,919 55..S45 15.1 15-9 16.7 18.1 18.2 18.9 18.9 19.1 21.6 21.7 23.1 23.9 25-3 254 32.0 32.3 29.7 29.9 29.2 31.6 33-6 *A11 of these cities spend more for schools, per capita of the total population, than does Butte. See Table Chapter XI. Figure 2 compares the age distribution of the population of Butte with the as'e distribution of the L'nited States as a whole. Age Distribution of Total Population \1.A\ 20.1 Un!teo States 9.9% EM Wm 15 TO 24 Ages Under S Yrs '^^'Z\ 3 TO 14. Butte IP W M^ 45 TO, 64 30 20 4.0 ^ 65 AND Over ^ 1.6 iO Percent 8.3% 15 13.0 17.8 10 20 30 40 Fig. 2. Age Distribution of Tot.\l Population. 12 SCHOOL SURVEY REPORT. ' The above table shows that the predominate age in Butte is between 25 and 44. Its adult population is, therefore, at the age of greatest strength and aggressiveness. It will, however, be noted on the other hand that but 15.1 per cent of the population is between 5 and 14 years of age, as compared to 17.4 per cent, for the country as a whole. This relatively small proportion of chil- dren of school age, when compared with eastern cities and when compared with the country as a whole, should enable Butte to provide much better educational advantages for its children than can be provided by the average city, particularly of the East. The city of Butte, or School District No. i, is, therefore, called upon to develop a system of schools adapted to the needs of a population predominately foreign, and engaged in skilled and manual occupations. By reason, hoAvever, of the active and aggressive character of its adult population, and the relatively small number of children of school age, the city of Butte should be able, without great financial burden, to provide the very best educational opportunities for the children of the city, and for all adults desirous of continuing their education. School Population of District No. i. School Census, 1913. The school census of 1913 for District No. i gave the num- ber of children and youth as follows : Under 6 years of age. 6,155 Between 6 and 8 years 2,019 Between 8 and 14 years 5'330 Between 14 and 16 years 1,418 Between 16 and 21 years 3.082 Total (all children under 21 years) 18,004 While there are. according to the school census of 1913, 18,004 children and adults under 21 years of age in the district, there is no reason to expect that this entire number will be found in school. The legal age of entrance to the public schools is 6 ; the compulsory education law, however, is operative only after children become 8 years of age, and they cannot be held in school after becoming 16 years of age. There are, however, reasons to expect that practically all children between 6 and 14 will be in school, also a large majority of those between 14 and 16, and a considerable part of those between 16 and 21. The enrollment in the Butte public schools in the first semester of the school year, 1913-1914, was as follows : CLASSIFICATION AND PROGRESS OF PUPILS. TABLE 3. Public School Enrollment, Versus School Census. 'Ages Public Schools* School Census Percent in Public Schools Between 6 and 8 Between 8 and 14 Between 14 and 16..... Between 16 and 21 Enrolled in High School 1,619 3.996 643 55 727 2,019 5-330 1,418 3,082 79.40 75.00 45.00 1.80 Total 7,040 11.849 59.60 ^Exclusive of 22 under 6. Neither are the data on the enrollment in the public schools of Butte sufficiently complete (the age distribution of the enroll- ment in the high school being lacking), nor are the data of the school census sufficiently differentiated with respect to age to make possible a complete comparison between school enrollment and school census. Such a comparison should, however, be pos- sible, and should be made each year in order to determine to what extent the public schools are reaching all of the children of school age of the city, and at what point or points the public schools break down. The necessity of so modifying the school census, and of collecting the needed data on school enrollment in order that such comparisons can be made, are treated in Chapter X. Comparison, however, can be made with the data at hand between the enrollment and school census in the case of two age- groups ; that is, between the enrollment and census for children between 6 and 8, and between 8 and 14. It will be observed that of the 2,019 children reported in the census as between 6 and 8, 1,619, or 79.40 per cent, were enrolled in the public schools, and that of the 5,330 children reported in the census between 8 and 14, 3,996, or 75 per cent, were also enrolled in the public schools. The practical question, from this point of view, is, where were the remaining 20.6 per cent of children between 6 and 8 years of age, and the remaining 25 per cent between 8 and 14? To be sure, a large proportion of such children were doubtless enrolled in either parochial or private schools. There are, however, no avail- able facts at hand to show the number of such children so enrolled. All that is known is that the public schools of Butte are reaching from 75 to 79 per cent of the children of the city between. 6 and 14, and a certain number of children of other ages. So long, therefore, as private and parochial schools are not required to report to the clerk of the board of school trustees, as is required by law (see Section 1104 of the General School Law of the State of Montana), and data are not collected by ages on the enrollment in the public elementary and the public high school, so long will it be impossible to determine whether or not all the schools of Butte 14 SCHOOL SURVEY REPORT. combined, piibHc, private, and parochial, are reaching all the children of school age of the community. The Holding Power of the Biitte Public Schools. — An efficient system of public schools not only attracts or reaches all the chil- dren of the community, but also holds them until either they are no longer subject to the compulsory education law, or until they have completed either the elementary school course of study, or the course of study of both the elementary and high school. While each separate school keeps fairly complete and accurate records of all pupils entering and of all pupils dropping out, these records have never been systematized and collected for the system as a whole to show to what extent and how long children are held in the schools. Effort has lately been put forth to this end, in the adoption of an "Admission, Discharge, and Promotion Card." This is an excellent movement, and is to be highly commended. If these records are carefully kept, and the data thereon tabulated, there will soon be at hand means of judging of the holding power of the Butte public schools. Despite the absence, until recently, of systematic records, we have collected data which show that considerable numbers of chil- dren drop from the public schools during the course of a term ; also data which tend to show that the holding power of the Butte public schools is reasonably good. Table 4 shows the number of children dropped from the elementary schools during the first semester of the school year, 1913-1914. TABLE 4. Children Dropped From Elementary Schools. YEAR c E 1 H Going- to Private or Parochial Schools V 3 1 « £ ° a ■a & _ in Percent of Enrollment Dropped Eighth Seventh Sixth Fifth 397 547 703 782 847 921 868 1259 6 8 9 9 13 14 II 15 10 18 35 29 29 21 25 20 45 47 69 58 79 80 74 128 1 1 -3 8.6 9.8 7-4 9-3 10.6 8.5 10.2 Fourth Third Second First 54 12 47 19 50 13 57 56 Total ! 6324 1 85 300 j 195 580 9.2 Five hundred and eighty children were dropped from the elementary school, it will be noted, during the first semester of the school year 1913-1914, out of a total enrollment of 6,324; that is, almost one pupil out of each ten enrolled left before the end of the first semester. To be sure, the public schools are not to be held responsible for pupils leaving, by reason of parental pref- CLASSIFICATION AND PROQRESS OF PUPILS. 15 erence for private or parochial schools, or for pupils leaving when parents move from the city, or when pupils are continuously absent for lawful reasons. School authorities are, however, re- sponsible for seeing that when a child leaves for a parochial or private school that he actually enters such school ; responsible for seeing that when a child reports his parents are moving from the city that this is actually the case ; and responsible for seeing that all cases of continuous absence are lawful. It should, however, be said that teachers, principals, and attendance officers are giving much attention to such cases ; yet, as will be pointed out in con- nection with our discussion of the enforcement of the compulsory education law, there is considerable to be desired with respect to the method of reporting, investigating, and recording the results of investigating such cases, to the end that no child shall drop from school without lawful reasons. Notwithstanding children for various reasons drop from the public schools of Butte, the data presented in Table 5 indicate that the holding power of the schools is reasonably good : TABLE 5. Age Distribution of Children in Elementary Schools. AGE I Number I Enrolled 1 of Each Age IPercent of Total I Enrollment I in Each Grade Under 6.. 6 to 7 7 to 8 8 to 9 9 to 10 10 to 11- 11 to 12- 12 to 13- 13 to 14- 14 to IS- IS to 16- 16 to 17- 17 to 18- 18 to 19- 2,2 912 707 702 726 642 662 671 593 415 228 44 0.03 14.40 11.20 II. 10 11.50 10.30 10.50 10.60 9.40 6.60 3.60 0.06 0.0 1 0.005 Total 6337 99-305 These several age-groups, at least from 6 to 7 up to 13 to 14, should be essentially equal, the younger age-groups, due to growth in population, being somewhat larger than the older. The pre- ponderating number of pupils reported between 6 to 7 is in all probability due to the fact that pupils, in considerable numbers, are actually entering school who, while giving their age as between 6 and 7, are really under 6. Beginning with the group between 7 to 8, it will be noted that there is but slight difference, from group to group, until we come to the group 13 to 14. On becom- ing 14 years of age, children who wish to do so, and who can qualify for the examination for an employment certificate, drop 16 •CHOOL SURVEY REPORT. from school, as do those who complete the course. These two factors account, therefore, at least in part, for the decreasing num- ber in the agcrgroups after 13 to 14. The uniformity in the number in each of the several age- groups up to the group 13 to 14 may thus be taken to indicate that the holding power of the public schools is reasonably good. But, as suggested above, just what their holding power is cannot be determined with exactness until there is a decided change in the reports of the schools concerning the enrollment and discharge of pupils. The Progress of Children in School. — The elementary school course of study is, in theory, eight years in length, and the high school course four years. A child entering the elementary school at six years of age should complete the elementary school in eight years, or by the time he is fourteen years old ; similarly, a child entering at 7 should be graduated at 15. Hence, if the age of a child and the grade he has completed or is beginning is known, it is possible to tell how far ahead or how far behind the course he is for his age. It is commonly agreed that the very latest normal age for completing the elementary school is up to 15. Children com- pleting the elementary course older than this are called overage, or behind their grade. In order, therefore, that children pro- gressing, regularly, through the grades may complete the ele- mentary school by the time they are 15, it is necessary for them to enter or begin the work of each of the several grades within the following age limits : Grade Normal Age Limit for Entering Normal Age Limit for Completing B A B A B A B A 5 B 5A 6 B 6 A 7B 7 A 8 B 8 A 6 7 7/2 8 8>^ 9 9>^ 10 II ii>4 12 121/^ 13/2 up to up to up to up to up to up to up to up to up to up to up to up to up to up to up to up to 7 7/2 8 8>4 9 9/2 10 10^ II iij^ 12 12^^ 13 13/2 14 141^ 7 7/2 8 8K^ 9 9/2 10 io>4 II 11/3 12 1214 13 13^ 14 up to up to up to up to up to up to up to up to up to up to up to up to up to up to up to up to 7/2 8 8^ 9 9>^ 10 10^ II 12 I2>4 13 13/2 14 I4>4 15 If, then, the ages of all the children enrolled in the public schools of Butte during the first semester of the school year, 1913-1914, are taken as of September first, and the above-normal CLASSIPICATION AND PROGRESS OF PUPILS. 17 age limits for entering each of the grades is taken as the basis of classification, the number of children in each grade under age, that is, ahead of their grade, the number of normal age, that is, up to grade, and the number over-age, that is, behind their grade, is easily determined. Amount of Over-Age. — Table 6 gives the number of chil- dren in each of the several grades of the public schools of Butte, from under 6 up to i8 1-2 to 19. In each grade, the numbers in the columns to the left of the heavy black-faced figures indicate the children ahead of their grade, the numbers set in heavy-faced black type indicate the children up to grade, and the numbers in the columns to the right of the heavy black-faced figures indicate the children behind their grade. 18 SCHOOL SURVEY REPORT. .la^sauiag lU9UIl[OJ -"3 F^ojL 00 ON 00 00 CO 00 o o ON rr5 00 FT ro" NO CO ?t" CM CM ut" 00 oo" NO CO cm" !m" CO NO OO CO CM CO" cm" CO in CO cT lO CM CO CO NO FT CO oo" CM GO CM CO CO CO o" f FT CM NO oT CO cm" CO CO CO co" CO CM CM CO CM CM no" CM uT CO 00^ CO oo" CM On lO cm" CO C F^ 00 CO CM CO O" N 00 CN] CO NO' CO o^ CO O^ cc. o^" CO CM 00 CM CM CO CO CO CO oc CO c NO CM CM 00 CO CO ON l>> CO NO t^ CO NO CM CO CO :o ^ On CO LO CM CO 00 LO CM CM "rt ^O 6T-^8I ^81- 81 8I-^ZI ^/zi- ZI ZI-^9I yi9\- 91 J 9I-^SI ' ' D >/iSI- SI : ^ — O si-Yin O u m Vin- n n-yi£i < Viiv ei rg ro ro ^ '^ a O CO ei-^i2i - : FT O oT CN oo" CM vo" CO o CM a\ t^ NO "T CnI UT" 1-1 1-1 co' no" O CO ut" fo" NO ^^ 00 CnI O CM FT 00 f^ ON a\ a\ >o o" L?7 00 (N oT CO 00 CM ?o" lO t^ CO F^ «3 co" CM cT cm" 00 CO io" NO t^ vo" lO LO" CM o CO IT} in CO NO CNJ \o" lO in" o in F^ CO in \o" vo CO CNJ CO CM <; CM < 00 ^ s ^ZT- ZI zi-^ii Vi\\- IT '"' ■ ii-^oi oo" oT oo" ^01- 01 01-^6 1— 1 Q w Q < ^6 - 6 6 -^8 ^8 - 8 irj o 00 00 O 8 -ViL 00 00 i-H oo" M O m" CO I-H io" 00 lO FT CVJ cn" < V^L - L o L -yi9 0^ yi9 - 9 O o CO C^ 9 J3pun < < pq LO < ir> NO NO PQ 'a a u O m < < CLASSIFICATION AND PROGRESS OF PUPILS. 1^ Table 7 shows more clearly than Table 6 the number of children in each grade in the elementary schools of Butte under- age, normal-age, and over-age. TABLE 7. Number and Percent, of Children Under-Age, Normal-Age, AND Over-Age. GRADE — Under Age- -Normal Age — Over-Age So < I B I A 2 B 2 A 3 B 3 A 4 B 4 A .S B. .S A 6 B 6 A 7 B. 7 A. 8 B. 8 A. 22 30 82 29 47 28 35 27 35 21 20 21 19 13 30 2.4 7-7 16.3 7-4 8.4 7.2 7-9 7.8 7.9 6.6 5-2 6.3 5-8 6.2 14-3 5-6 699 216 235 142 204 140 152 109 127 99 105 88 106 65 68 48 78.3 55-7 46.3 36.4 36.7 36.2 34-2 31-5 28.6 28.4 27.4 26.5 32.3 30.4 32.4 30.2 177 T42 191 219 305 219 258 210 282 226 261 223 203 136 112 102 19.7 36.6 37-5 56.2 54-9 56.6 58.0 60.7 63.6 65-3 67.6 67.2 61.9 63.6 53-4 64.1 898 388 508 390 556 387 445 346 444 346 386 332 328 214 210 159 Total, grades 468 7-4 2603 41. 1 3266 51- 6337 20 bCHOOL SURVEY REPORT. It is astonishing to find that, of the total number of different pupils in the elementary schools during the first semester of the current school year, only 468 were ahead of their grade, as com- pared to 3266 who were behind. In a word, taking the enrollment as a whole, out of each 100 children : — 8 are ahead of their grade, 41 are up to grade, and 51 are behind their grade. Conditions are the worst in the 6 B grade, Avhere out of each 100 children : — 5 are ahead of their grade, Q.'j are up to grade, and 68 are behind their grade. While conditions are the worst in the 6 B, even in all the other grades, with the exception of the i B, the per cent of over- age children is extraordinarily high, ranging from 36.6 per cent to 67.2 per cent. The conditions shown to exist in Tables 6 and 7 are shown even better in Figure 3, on the opposite page. Degree of Over-Age. — The seriousness of children becoming over-age depends on the grade they are in, and on how far they have fallen behind their grade. Table 8 shows, by grades, the number of children over-age a given number of years. CLASSIFICATION AND PROGRESS OF PUPILS. 21 Percentages OF Pupils Who Are Under Age, Of Normal Age, and Over Aee Grade Under Normal ^ B P/zV/V/^ A^[ 3i A ^ 4. B ^: A ^ B ^ A ^ ^ A s ^ A^ B r^^^^^ A S Over Percent 20 E^^ ^^^S^ :^^^^ ^^^^^^^ E^^ i^^^^^^ ^ss^^ tN\\ \\\NN\\\ N\\ i ^^^^ k\\\\\^x\\\\\\vi E^^^^^ssg WWWWixv-w--^ ^^^^m^s^ iE^^^^^s;^ F xWWWWwww^ WWWV^ ^^^ 4-0 ■ 60 80 100 Total, All Grades-. Under Age 7.4 Of Normal Age 4-1.1 Over Age 51.0 FIG. 3. AGE DISTRIBUTION BY GRADES. 22 SCHOOL SURVEY REPORT. CO O < I > O o w 'A o- Q 00 PQ H CO 00 00 o vo r^ u^^ ^vo ^ cq 00 '^ o ON tx rd OOO O O LOCO -^ -^ ^ -vhOO CO 0) 1- w lO ro -t-' X rOLOrou^ro^rOTfrorororOOl C^l >-< CO H vC' u rt Op., M 01 M On i-O OnOO O -'>-H(NCOM010-)C^0^MC^0lMhHi-H OI ^ G ^ CO H - 2 5 O . )^ rc O (U < g " ^ ^ "^O O". O 0) rs.l^M00 -^O rOfOO^O LC VC' rtii C 01 01 01 CO '^ ro t}- i-O ro ro i-i 00 !-H o 01 rt ^ fO ^H > - o w rt S >0^ 01 O COU^tN.LOI-H00 ^tx M "" ^ C s^ Oi 01 i-o tx lOOO VCOOVOOOVO iXLo-xhOi ON ^y. rt 00 rt +2 cONC vc O OlCOi-OOOOVOOO h-vOi-Oi-i O o H a; LOO -^coONt-H M OnooOnOni-i OnvC' MD IX a. en I>^ l_,HHM>_MI_l |_| |_| tN. a M J — 15 MH g a; o ^ ^^ ■^O V^ 01 ':^ O 01 ON fx ON LOOO O LOOOOO O M co^O ^io>0 01 OnOCO OvC'^ ^ CO O .^ < OOOlOlMOlH-l-IMI-J M HH VD ^ Ol Oi O oi ON txOO LoixLOH- O M ONcoO On 00 o c <^ 01 coco OI-^01C0 01C0010101>-'WCO \o 1) bJO H^ ^ <1 13 ~ c g S Vh !-H t— 1 d) 01 O 01 OnVO 00 loioloOnO O IxrOO ON o o OI cooo oi-Nhoicooiroi--oioi>-'i-ico >o ^ CO K*^ ^ ^H a; M JJ J '^ 5 cu t^ 01 OI i-H 01 00 C fa cJ ,_— . 15 o X < X < p: < X < p:: < PC < p: < p: <; ^ H ^ b- 01 c "~ c ^ -^ h rj h L/ -y U" -->c VC ^ s r^ sOC 00 CLASSIFICATION AND PROGRESS OF PUPILS. 23 Percentages of 3266 Over- Age Pupils Who Are Bemino Their Grades LESS THAN 1 YR 1-2 2-3 3-UP 6 A. 8 27.6 ii.l 6.0 W////////. $^ Percent • ZO • 40 • 60 80 • 100 Fig. 4. Percentages of Pupils one or More Years Behind Their Grades. It will be observed that of the 3,266 children over-age 1790 are less than i year behind their grade, 891 are i and less than 2 years behind their grade, 386 are 2 and less than 3 years behind their grade, 199 are 3 years or more behind their grade. The significance of these children being behind their grade lies in the fact that if the 1,790 less than i year over-age continue in school and advance regularly they will be between 15 and 16 on completing the elementary school; the 891, i year and less than 2 years over-age, will be between 16 and 17; the 386, 2 years and less than^3 years over-age will be between 17 and 18; while the 199, 3 years or more over-age will be between 18 and 19. As a matter of fact, in all probability the majority of these children will never complete the elementary school, but will drop out somewhere in the 6 B or higher grades. Significance of Over-Age. — The significance of over-age does not lie entirely in the fact that these children will probably leave the elementary school before completing the course, but lies more particularly in the fact that, while they do remain in school, the instruction received will not be adapted to their abilities. Hence such children, on the one hand, clo not receive the full benefits from the instruction given them ; on the other hand, be- ing thus improperly classified, they are a burden to the teacher, and prevent her from giving the proper attention to the other members of the class in which these over-age children are to be found. In a word, it is impossible for a teacher to do good work in a 4 B class, if along with the 4 B children of normal age, that is, childr'en from 9 to 10, there are children 13, 14, 15 and even 18 years old. Hence, over-age is not only significant for the children who themselves are over-age, but over-age becomes sig- nificant for all members of the school. Moreover, over-age in the elementary school not only affects the work of the school, but affects the number of children going to high school and the number remaining to complete the high- 24 SCHOOL SURVEY REPORT. school course. Were data at hand it could be clearly shown that a smaller per cent of over-age children go to high school than of normal or under normal age. Table 9 gives the age of the chil- dren entering the high school during 1913-1914. TABLE 9. Age of Entrance to High School — School Year 1913-1914. 11HI12 to 1 to 12 \i2y2 12% 13 13HU4 14^15 |15^|16 16i/^|17 |17i/4|18 to to to 1 to to to 1 to 1 to to 1 to 1 to 1 to 13 i3y2 14 1141/2I15 1151/4116 \i6y2 17 1171/2II8 iisy 1 i — 1 1 3 1 19 1 36 1 44 41 1 43 1 26 1 17 1 6 I 6 1 1 Total entering, 244. Total of normal age, 4l Total entering Under Age, 104. Total entering Over Age, 86 If 15 to 153^ is taken as the normal age of entrance, it will be observed that of the 244 pupils entering the high school, 104 entered under age, 41 were of normal age and 86 were over-age. There can be little question that a considerable portion of these 86 pupils, particularly those that are i to 2 years over-age, will drop from the' high school before completing the course. Hence, were children graduated from the elementary school earlier, there is little doubt but that they would enter the high school in greater numbers, and that greater numbers would remain to complete the course. Cause of Over-Age. — Why are 50 per cent of the children in the elementary schools of Butte over-age? Over-age may be due to two main factors: (a) either too late entrance to school, or (b) to failure to progress regularly after entrance to school, or (c) to both late entrance and failure to progress regularly. The facts at hand indicate that over-age in the elementary schools of Butte is not due to late entrance to school. This is revealed by the fact in the i B grade only 19.7 per cent of the children are over age, whereas 78.3 per cent, despite the extra- ordinary high per cent of non-promotion (.see Table 10), are of normal age and 2.4 per cent are under age. (See Table 7). In- deed the distribution by ages, (see Table 6), indicates that chil- dren in large numbers are entering school even before they are 6 years of age, which tends to reduce rather than to augment over-age. In a word, over-age in the elementary schools of Butte is due to failure to progress regularly after entrance, that is, to the conditions found in the schools themselves. Special Classes for Backzuard Children. — What, then, should be done in order that children in greater numbers may be able to progress regularly through the schools? Butte is not the only city in the country which has faced this problem. While the solution found differs from place to place, the principal means adopted are essentially the same everywhere ; namely, the estab- lishment of special types of classes. There are in the elementary schools of Butte 199 children scattered from the i B to the 8 B grade who are 3 5^ears and CLASSIFICATION AND PROGRESS OF PUPILS 25 more behind their grade. In the State of New Jersey there is a law which makes it compulsory on boards of education to form special classes for all children three years or more over-age. Classes for such children are small, the number enrolled not ex- ceeding 15 to 20 pupils. Children 3 years and more over-age will, as a rule, be found to be mentally defective. It would seem v/ise, therefore, that at least an examination be made of this entire group of over-age children, and, for those found to be de- fective, that special ungraded classes be formed. There would probably be need for from 6 to 10 such classes here. For children less than 3 and more than i year over-age, ot which there are in Butte 1277 scattered throughout all the differ- ent grades, there have been established, in all progressive cities, what are known as classes or schools for backAvard children. Where such backward classes have been established there is gen- erally one such class in each school, and into this class are brought all children 2 or more years over-age. The purposes of such classes are two-fold. First, for the younger children, the object of such a class is so to instruct them that they may make up the major portion of lost time, and ultimately graduate from the regular course. Second, for the older children, who still are in the lower grades, the purpose of such a class is so to modify the course of study that these children may receive the kind of instruction which will later be most useful to them. No effort is made to return these pupils to regular classes, for experience has shown that they seldom, if ever, remain to complete the regular course. The preferable method of caring for backward children, however, is to bring all such children into one central school. This makes possible a better classification and graduation, and a better modification of instruction to the particular needs of given groups of children. Such a central school has the same two-fold aim as the single class. Whether the school authorities of Butte decide to establish classes in the several schools, or to organize one central school, it would seem that there would be need in the city for not less than 12 to 15 such classes. While it is not serious for children to be less than one year over-age, or even more than a year over-age, providing they are still in the lower grades, it, however, becomes serious for children in the upper grades. Among this group of children, namely, children less than i year and over i and less than 2 years over- age, of which there are over 2500 in Butte — there are probably individual cases which should have the advantage of the special attention to be received in a class or school for backward chil- dren. Many of these children, however, have the ability, provid- ing opportunities were offered, to do more than the regular work in the course. For such children there have been established, in all progressive cities, what is known as rapid advancement classes. A number of such classes should be established in the 26 SCHOOL SURVEY REPORT schools of Butte. From the facts at hand, it would seem that there should be one or more such classes in each grade above the I B. If there are not sufficient children in one school to form such a class in a given grade, such children might be transferred temporarily to a neighboring school having such a class. Elementary Suuiincr School. — A further means of enabling backward children of whatever degree of over-ageness to more nearly gain a complete elementary education, is the establishment of summer schools for backward children. Such summer schools are not play schools, but places for serious work, where children are able either to make up the work in certain subjects in which they have failed, thereby receiving the promotion denied them at the end of the school year, or where they are able to do an entire term's work. Climatic conditions are most favorable in Butte for the establishment of such a summer school. If such a school were established, it would merely be extending to the elementary school pupils, advantages already offered to high school pupils. The establishment of special classes for defective children, the establishment of special classes or a central school for back- ward children, the organization of rapid advancement classes, and the organization of a summer school, would all tend to re- duce the amount of over-age, because these special classes and schools afford children additional opportunities to do the pre- scribed work, or the opportunity to do this work under more favorable conditions than at present. It might be thought that the formation of these special classes would entail material cost. It must be remembered, how- ever, that these children are already in the schools and are being instructed at a great disadvantage, whereas if they are segre- gated and given special opportunities, not only is the education received by them more beneficial, but many of them will be able to complete the elementar}- school, and thus shorten the number of years they are actually instructed. In a word, experience has shown that whereas the direct cost of establishing such classes is considerable, the ultimate cost is immaterial. In addition, the segregation of this group of children makes more favorable the working conditions in regular classes for normal children. Rate of Promotion and Non-Promotion. — Equally as funda- mental in reducing the amount of over-age in the elementary schools of Butte is the necessity of reducing the present high rate of non-promotion, for the direct cause of children falling behind their grade is their failure to be advanced regularly, hence the significance of non-promotion. Table lo gives, by grades, the number of -children promoted, the number not promoted, and the per cent of non-promoted for the first semester of the current school vear. CLASSIFICATION AND PROGRESS OF PUPILS 27 TABLE lo. Promotion and Non-Promotion. Total Enrollment for Semester Numb'r in Class at end of Sem- ester Number in Class at at End of Semester Per Cent of Non-Promo tion on Base of No.at end of Semester Grade a Promoted b Not Promoted 8 A 8 B 7 A 7 B 6 A 6 B 5 A 5 B 4 A 4 B.r.... 3 A 3 B 2 A 2 B I A I B 177 220 214 333 333 370 152 200 199 301 297 337 141 170 151 241 248 275 272 350 300 353 313 403 294 361 283 549 II 30 48 60 49 62 7 15 24 19 16 18 348 434 371 476 384 537 375 493 380 879 r 322 402 342 426 349 492 346 448 353 778 50 ! 15 52 1 12 . 42 i 12 73 i 17 36 ! 10 89 : 18 52 1 15 87 ! 19 70 ! 19 229 ! 29 Total 1 6324 5744 4704 1040 \ 18 28 SCHOOL SURVEY REPORT Grade 8 " B 7 ^ B 6 * B 5 * B B - A Percentages of Non-Promotion Based on Enrolment at Eno of Semester X////A = NoN- Promoted wi w,m ^^WZZZL '^WL ^^: ^^ wzm ^a ^3 ^3 ^^ B Percent V^Z^ ^^ ^^ m^WZL WMTZM. 8 eo 4fl 60 ©cr I GO Fig. S. The line drawn at 8% indicates a probable maximum normal rate of non-promotion. All non-promotion to the right of the line is excessive. CLASSIFICATION AND PROGRESS OF PUPILS 29 It will be observed that out of 5744 pupils in all the grades at the end of the first semester of the current school year, 1040 failed of advancement, or 18 per cent. It will also be observed that the per cent of non-promotion varies from 7 per cent in the 8 A grade to 29 per cent in the i B grade. Reducing Non-Promotion. — The first step in lowering the present high rate of non-promotion is to standardize better the requirements of the several grades. These requirements should be equal, that is, adapted to the abilities of the children. There is no good reason wh)^ for example, the rate of non-promotion in the 4 B grade should be 10 per cent and in the 7 B grade 24 per cent. We would therefore recommend that data be collected at the end of each semester by schools and by grades, on the rate of promotion and non-promotion, and that these data be made the basis of discussing with principals and teachers in the several schools the reasons for variations in non-promotion standards, to the end that there may be uniformity of standards of non-pro- motion in the several schools and that the present high rate of non-promotion may be lowered. It will be noted that the highest rate of non-promotion in any single grade is in the i B, 29 per cent ; that is, almost i child out of every 3 failed of advancement at the end of the last semes- ter. While there are other reasons for this high rate of non- promotion, one factor in bringing about this condition is the presence, in at least several schools in the city, of a large number of foreign-speaking children, to whom English is practically a foreign language. To meet similar conditions, progressive cities have formed what is known as classes for non-English speaking children. These classes are made smaller than the standard i B class. To them is assigned one of the best primary teachers in the building, and into the class are brought all children of the type in question. Such classes should be established in all schools of Butte where there is any considerable number of foreign- speaking children. The introduction of such classes alone would go far to reduce the present rate of non-promotion. While such classes would add to the direct expense of instructing primary children, facts are at hand to show that, when such classes are inaugurated, the rate of promotion among such children is so much higher that, in the last analysis, such classes are an economy. Even more fundamental in reducing the present high rate of non-promotion than standardizing the requirements of the sev- eral grades, and the establishment of classes in the i B for non- English speaking children, is the necessity of a fundamental change in the conception of what constitutes an elementary educa- tion. The prevailing conception here seems to be that the purpose of the elementary school is to instill into the minds of the children a given number of relatively isolated facts and formal definitions. Children who can master these facts and definitions and repro- duce them are promoted. Those who are unable to do this are not promoted. Such a working conception of elementary educa- 30 SCHOOL SURVEY REPORT tion represses the natural abilities of the children and fails to appeal either to their imagination or to their reason. If school officials, principals and teachers can come to see that the prime purpose of the elementary schools is to develop the natural tastes and abilities of children, to arouse their imaginations, to stimulate their emotions, and to give them power to solve problems and to meet practical situations in life, the question of the right of chil- dren to advancement will not be based upon mastery of facts of a grade, but upon the ability to do work which lies ahead. On such a basis, teachers and principals would feel that they can ad- vance a much larger per cent of children than they do at the present time. The question naturally arises, in this connection, what is the proper rate of promotion? Briefly answered, the requirements of the elementary-school course of study should be such that nor- mal children, regular in attendance, should be able to complete the elementary-school course in at least 8 years, which means, when interpreted in terms of promotion, that if children are normal and regular in attendance the rate of promotion should be approximately lOO per cent. Failures by Studies. — Whereas the over-age results directly from failure to be advanced, non-promotion is due to children failing in certain branches of the course of study. Table ii gives, by grades, the number of children failing, at the end of the first semester of the current school year, in each of the several branches of the elemenlarv school course. CLASSIFICATION AND PROGRESS OF PUPILS 31 TABLE II. Failures by Studies. ,;_j ;_ ■ QJ U: CO yj .S . 1 u £ >. • C^ ^ OJ rrt _CJ c '% CO 8 A 177 152 II 5' 1 I 1 1 I i 8 B 220 200 3 17 14I 3 6 II 2 I i! 7 A 214 199 3 38 26| 6 15 9 II 3 I I 7 B 333 301 54 23 1 2 19 7 5 4 II 3 6 A 333 297 I 44 5i 3 b 2 I I I I 6 A 370 337 6 50 i8| II 21 16 3 8 6 8 I 5 A 348 322 3 38 8i 4 18 II I I I I 5 B 434 402 I 23 10 6 21 5 I o| 4 A 371 342 6 28 20 8 II 7 2 21 3 ol 4 B 476 384 537 375 493 380 879 426 349 492 346 448 353 778 4 42 24 43 30 46 25 7 36 6 t8 13 7 34 19 2 r> n n 0. 2 A 6 n n n> 2 B TO 31 7 ^8 t6 n 7 T n 2 A ^6 I i 2 B 66 7 3 8 T 0! n I A 64 203 f> I B 9 9 Total 6324 5744 396 4971 221 143 1 165 100 27 31 20 29 7 2 It will be observed that the total failures in the several studies are by no means uniform, varying from 2 in sewing tO' 497 in arithmetic. On the basis of the number of children failed in the respective subjects, it is obvious that the requirements in these several subjects are unequal, and that these branches are not given equal place in the advancement of the children. The num- ber of failures in arithmetic is the highest, and this subject is obviously given the first place in the course of study ; reading, the second; language, the third; geography, the fourth; spelling, the fifth ; physiology, the sixth ; writing, the seventh ; music, the eighth ; United States history, the ninth ; drawing, the tenth ; manual training, the eleventh ; and sewing, the twelfth. Indeed, in view of the number of failures, it might be said that only reading, arithmetic, language, spelling, geography and physiology play any material part in the advancement of children in the schools of Butte. While perhaps no one would contend that writing, drawing, music, manual training and sewing should be given equal place with the other branches of the course of study, yet we believe it is equally wrong not to give these branches an important place in the education of children. Indeed, were this done, we believe that not only the rate of promotion in the ele- 32 SCHOOL SURVEY REPORT mentary schools in Butte would be increased, but we believe that the real value of the education given would be enhanced. Reducing the Number of Failures. — The differences in the number of failures in the several subjects that seemingly do actually count in the advancement of the children, raises the prac- tical question why 497 children should be failed in arithmetic against 396 in reading, 221 in language, 165 in geography, 143 in spelling and 100 in physiology. These differences also raise the question why the requirements in physiology should be such that 100 children are failed against 27 in United States history. In a word, these variations raise the question with regard to the re- quirements of the several branches of the course of study. Similar data, we believe, should be collected by schools and by grades, and these data be made the basis for discussion with principals and teachers, to the end that the requirements in the several studies may be adapted to the abilities of the children and made com- mensurate with the real importance of the respective subjects in the education of children. Sise of Class in Elementary Schools. — While the progress of children through the schools is not as regular as it should be, and while there is great need of providing special classes for different groups of pupils, there are, notwithstanding, conditions in the schools of Butte which ought to contribute much to the regular advancement of pupils. Among such conditions is the size of classes. In order that the very best work may be done, classes in the schools ought not to contain more than from 35 to 40 pupils. When classes are of this size, it is possible for the teacher to give the time and attention to pupils requisite to the achievement of the best results. There were in the elementary schools of Butte, in the first semester of the current school year, 177 classes. Of these 177 classes, the average number belonging, that is, the daily average number for which a teacher is responsible, was as follows : 18 had an average belonging of less than 25. 39 had an average belonging of 25 and less than 30. 56 had an average belonging of 30 and less than 35. 45 had an average belonging of 35 and less than 40. 17 had an average belonging of 40 and less than 45. 2 had an average belonging of 45 and less than 50. Total, 177. While 19 of the classes in the elementary schools exceeded the ideal number 35 to 40, it may be said that there were but two over-large classes, the two having an average belonging of 45 and less than 50. We doubt whether such favorable class conditions are duplicated in any other city of similar size in the United States, and we heartily approve and commend the size of classes as found in the elementary schools of Butte. Sise of Sections in the High School. — Similar favorable con- CLASSIFICATION AND PROGRESS OF PUPILS 33 ditions exist in the high school with respect to the size of recita- tion sections. Recitation sections in a high school, it is generally agreed, ought not to contain more than from 25 to 30 pupils, if instruction is to be effective. Table 12 gives by subjects the number and size of the recita- tion sections in the Butte High School, as of February 27, 1914. TABLE 12. Number and Size of Recitation Sections. Subject Size of Section VO 10 CO LO 1 1 CO 1 h-4 «ERS By Grades multiplication answer^ division li Fig. 11. This represents the achievements of four groups children in multiplication and division. To be read the same as Fig. ot 10. 94 SCHOOL SURVEY REPORT be called to one error which was made by scores of children in all the grades. In so easy a problem as No. 5, which reads : "The uniforms for a baseball nine cost $2.50 each. The shoes cost $2.00 a pair. What was the total cost of uniforms and shoes for the nine ?" many of the children worked as follows : $2.50 X 9 equals $22.50 the cost of uniforms. $2.00x9 equals 18 the cost of shoes. 22.68 the total cost of uniforms and shoes. Errors of the same sort abounded in most of the sets of papers. The number of problems attempted in the various grades grades was high, but the score was brought down very low by the great number of errors. There were enough rooms which proved exceptions to this rule, however, to indicate that some teachers have been emphasizing clear thinking, instead of form work. More than half the children in the schools worked fewer than four of the problems in the fifteen minutes allowed. Other children, on the contrary, worked most of them, and often without the use of pencil at all for the majority of the problems. We can- not believe that such wide variation in ability would be found if the instruction were adapted to secure the development of the native ability in each child. In Fig. 12 the amount of overlapping from grade to grade is clearly brought out, and we must here emphasize the urgent need for greater adaptation of the arith- metic work to the particular needs of the individuals making up any class group. . V. — Summary. As has been pointed out in the sections of this report dealing with the courses of study, Chapter III., and with the quality of in- struction, Chapter II., drill work in the schools is strong. This observation is verified by the high standing which the school system, as a whole, made in the tests in spelling, and the funda- mental operations in arithmetic. Whether this drill work is done with the greatest economy of time and effort may be questioned a little in the light of the great variability which is present in the achievements of the members of the same class. No type of school exercise needs more careful adaptation to the individuals receiving it than does the drill lesson. Some excellent penmanship work is done in Butte. However, the system of penmanship now being em.ployed requires keen in- sight into the fundamental principles of habit formation, if teach- ers are to avoid some serious mistakes in its use. This insight is not universally shown by the teachers in the city. Excessive drill on the movement exercises, at the expense of daily practice in the writing of good papers, has led, in the case of many children, to failure of control over the muscles used in writing. The result is a general irregularity in letter formations, and a domination of THE ACHIEVEMENTS OF PUPILS 95 Results of Arithmetic Tests Percentage of Pupils Attaining Given Scores Problems Involving Rseasoninc? median scores 5th 6th 7th 8tm 2.2 39 «5;8 7.7 20 8tm Grade 20 10 — 6th Grade 7th Grade '/77777?r77m 6 7 8 9 10 II 12 13 14. 15 Fie;-. 12. Representing the percentage of children making the given scores in reasoning problems. For example, 197o of the fifth- grade children made a score of 0; 19% made a score of 1; etc. The lines representing the median scores for each grade tell about how many in each grade surpass the median scores for the grades above, and "hov.- manv fall below the median scores for the grades below. 96 SCHOOL SURVEY REPORT the forms used in drill exercises. Care upon this point will cor- rect the work in many of the rooms which stand low. The pen- manship will then be very satisfactory in the city as a whole. In composition, and again in reasoning, we see revealed the results of what is perhaps the most serious error in the teaching method now practiced in Butte. Filling children's memories with text-book facts does not make independent thinkers of them. Opportunity for self-expression should be freely given in kinder- gartens, and as freely given in all the grades above. What chil- dren think out for themselves is the main source of strength in later intellectual life. Except as the information in the text- books can be utilized, as material for independent thinking, it is of slight value indeed. It is through contact with nature in nature study and elementary science ; through self-expression in drawing real things, singing and composing real songs, making with the hands useful objects which the child has originated in his own mind ; and through making applications to the social situation around him, of the materials of history, geography,, mathematics, and the other studies ; it is through these things that the powers within a child grow. Experience in doing, and in independent thinking, furnishes the only adequate basis for expression. The solving of problems in nature study, geography, and history, as well as in arithmetic, is the only satisfactory training for the de- velopment of ability in reasoning. In this connection it may be well to emphasize what has been said elsewhere in this report, concerning the influence of the examination system now in vogue in Butte. Whatever adminis- trative device tends to encourage the getting of facts for the sake of facts, is almost certain to lead to undue emphasis upon formal instruction. Examinations should not be used in the elementary schools as a measure for determining promotion of pupils. As an illustration of the legitimate use of tests it may be interesting to cite the case of the Boston schools, where the progress in the fundamentals in arithmetic was measured by giving the Courtis Tests in January, and then again in April. By reference to Figs. ID and II it will be noted that Boston was weakest in division. That chart records the results of the January tests. Knowing this weakness, the teachers sought to remedy it. As a result, while the average gain between January and April was 2.1 exam- ples in addition, 1.8, in subtraction, and 2.0, in multiplication, it was 2.7 examples in division. If, then, instead of using examinations to determine promo- tions, teachers and principals used forms of tests, such as the ones employed by the survey commission, to determine how much progress is being made from year to year, and how much the weaker pupils are gaining,' and the like, then the tests would be regarded as means of really helping the teachers to solve their probems. Then, too, both the teachers and ,the pupils would be glad to have the measure applied. SUPERVISION OF INSTRUCTION 97 CHAPTER V The Supervision of Instruction. The efficiency of a teaching' corps depends not only upon the professional preparation which the teachers may have had for their work, but also upon the adequacy of the supervisory corps with whom they work. The survey commission studied carefully the present situation with respect to supervision by hold- ing conferences with the superintendent of schools, the primary supervisor, the supervisors of special subjects, and with the prin- cipals of schools. Some member of the commission spent from one to four hours with each of the supervisors mentioned above. In some cases, as many as three members of the commission held conferences with the same supervisory officer. In addition to these conferences much light was thrown upon the problem by a careful survey of the courses of study in use, and by means of conferences with teachers with respect to their needs and con- cerning their contact with the supervisory officers. It is the chief business of the supervisory corps in any school system to continue the training which teachers may have had in preparation for their work. A teaching corps which is standing still can never be considered satisfactory, from a professional standpoint. Just as the doctor or lawyer must constantly keep in touch with the best work done in his profession, so the teacher, to be efficient, must be kept in touch with educational progress, and must expect to grow in teaching power from year to year. Indeed, it is safe to estimate that, under adequate supervision, the efficiency of teachers may be more than doubled after a short period of years. This is especially true, of course, of those who are young in the profession. For convenience of discussion, the work of the supervisor may be considered under the following heads : 1. The demonstration of methods of teaching. 2. The criticism of instruction given by teachers. 3. The securing of the participaton of teachers in the de- velopment of supervisory and administrative policies. 4. The measuring of the achievements of pupils. Demonstration of Methods of Teaching. — For a large ma- jority of those who engage in teaching, the most effective means to be em.ployed in developing right methods of teaching is to be found in the demonstration of successful methods, together with a discussion of their validity. An efficient principal of a school will often seek to strengthen the work of a teacher by teaching a class, and then, at some later time, holding a conference with the teacher she desires to help. In this way, it will be possible not simply to say to the teacher, "Do as I do," but also to point out the validity of the particular method demonstrated, and to dis- cover wherein may lie the difficult}' of understanding for the teacher whom the principal desires to help. 98 SCHOOL SURVEY REPORT In many school systems, teachers who do excellent work are asked to teach before a number of their colleagues. After such lessons for observation are held, the teacher who does the w^ork, and those who have observed, meet for discussion, in order that all may gain an insight and appreciation of the strength or weak- ness of the lesson taught under the guidance of the supervisory officer. It has been found advantageous in many school systems to have teachers visit in each other's rooms. This may prove profitable when the supervisory officer knows where to send the teacher who is to get help, and when the teacher knows that she is expected to report back, to the supervisory officer, her thought with respect to the teaching observed. Criticism of Instnicti^n. — Supervisors may help teachers through careful , and systematic criticism of their class-room teaching. A principal can often secure the confidence of the teachers with whom she works by showing appreciation of the strength which she has discovered. It is of course not enough to say that work is good, in order to capitalize the success of the teacher. The principal, or other supervisory officer, must indi- cate clearly the validity of the particular exercise commended in terms of principles of teaching, which are made clear to the teacher. With this foundation laid in appreciative criticism it will be possible for the supervisor to point out weaknesses in the work which has been observed, and to suggest again, in terms of fundamental principles, commended changes in method. Many exceptionally capable teachers need the help which can be given by the supervisor who suggests, by virtue of larger experience and broader professional outlook, possibilities of achievement which had never occurred to the teacher. This suggestive criti- cism may often be the means of keeping alive professionally a teacher who might otherwise cease to be interested or enthusiastic in her work. Co-operation of Teachers in Developing School Policies. — Successful supervisory officers are learning that it is advan- tageous, in so far as it is possible, to secure the participation of teachers in the development of supervisory and administrative policies. For example, in the making of the courses of study. The contribution of the teacher of the grade is just as important as that of the supervisory officer, or of the subject-matter expert. Indeed, there can be no satisfactory teaching of a course of study without that understanding and appreciation on the part of teach- ers which is best secured by having them contribute largely to the preparation of these syllabi. A wise administrator constantly seeks to acquaint teachers with the meaning of records which are kept and reports which are required. Some of the best forms for recording school information, and many of the most acceptable ideas with respect to those supervisory measures, have come from interested groups of teachers. Teachers' meetings cease to be a bore when it is understood that it is in this democratic assembly that the policies which are to govern the school system are to be SUPERVISION OF INSTRUCTIO N 99 developed. In many systems of schools, a series of meetings by grades, or groups who have special interests, have been continued over a year or more in order to develop a course of study, or to discuss administrative policies, or for professional study which looks toward the improvement of the work in the schools. Measurement of the Achievements of Pupils. — A supervisory officer who is interested in his schools naturally attempts, from time to time, to measure the achievements of the pupils in the schools under his charge. Until very recently nearly all school systems used the term-examination as a means for making these tests. The courses of study were outlined on the basis of definite accomplishments, in definite text books, and then examination questions, uniform for all schools, were issued from the superin- tendent's office, the test being how many pupils could pass the written tests issued. This has been the method used in Butte, the question issued being either the Montana state questions, or questions approved by the city superintendent of schools. These examinations have been attempted b}^ all pupils, from the third to the eighth grades inclusive. One week, four times each year, or a total of one school month, has been given to these tests, and another week, also four times each 3'ear, or another school month, to preparation for the tests. Nominally one-third, but actually nearly one-half, as is explained in the footnote on page 50, of a child's chances for promotion from grade to grade has depended upon the ability to pass these quarterly written tests. The inevitable result of this method of school supervision has been that the teachers have come to teach text books, rather than children, and one of the measures of efficiency in the teaching corps has come to be the ability to prepare children for these examinations. As a method for supervising the schools the periodical writ- ten examination is about as poor and as wasteful a method as could be devised, and the bad results of the system in Butte have been well set forth in the statistical data given in Chapter I, show- ing the large number failing to pass the promotional tests and the large number of over-age children in the schools. Many of the faults in the instruction seen, as pointed out in Chapter II, on the Quality of Instruction, are also undoubtedly due, in large part, to the system of tests which have been in use, and which have determined the aims of the instruction given. This system of supervision is so wasteful of both the teachers' and pupils' time ; the questions asked are frequently so irrelevant, and so technical ; the effect of the tests in shaping the instruction are so bad ; the general failure of the plan as shown by the tests given (See Chapter IV), to insure efficient instruction, is so evident ; and the results on the promotion of children are so disastrous ; that the survey commission recommend the abandon- ment of these uniform written tests, and the substitution, not only of a more personal form of school supervision, but also of a more reliable basis for the promotion of pupils. If a course of study 100 *" SCHOOL SURVEY REPORT , based on topics, rather than pages in text books, were outlined for the schools; if the supervision provided were to direct atten- tion more to the improvement in the methods of instruction on the part of teachers, and the methods of supervision on the part of principals; and if. promotion from grade to grade were based on the combined judgment of the teacher and principal con- cerned, — the educational results obtained in the Butte schools certainly would be materially improved. Standard Tests of Instruction. — The recommendation that the type of examination test heretofore used be abandoned does not mean that the survey commission feel that tests for purposes of supervision should not, from time to time, be made. On the contrary, the survey commission distinctly recommends the oppo- site. The tests that they recommend, however, in subjects in which they may be used, are the so-called "standard tests," such as were used by the commission itself in testing the work of the schools, and as are explained in some detail under Chapter IV. By the use of these standard efficiency tests, — tests designed to test individual growth, increase in accomplishment, reasoning ability, and increased personal power on the part of pupils, rather than the memorization of knowledge which may or may not be of any real value, — an efficient addition to the work of supervsion in Butte may be introduced. Careful students of education are beginning to appreciate the inadequacy of the method of examination of pupils which has been common in the past. With the development of scales and units of measurement which enable us more accurately to evaluate the achievements of pupils, the work of the supervisory officer has increased in significance. When such careful measurement of the results of instruction are made, and when teachers have been trained to appreciate the validity of such measures, it is relatively simple for the supervisory officer to point out with pre- cision the strength or weakness of a particular teacher. Where the right attitude exists between teachers and supervisors, this careful analysis of the results of the teacher's work quite com- monly results in a change of emphasis, or a re-distribution of time or eiffort upon the part of the teacher. Teacher and Supervisor. — In the survey of the problem of supervision in the Butte school system, the commisson were im- pressed with the spirit of co-operation which was evident as be- tween principals and teachers. They found many teachers who were eager to improve their work, and principals who were most anxious to help them. In every case, they felt that the principals were endeavoring faithfully to perform their duties, as they under- stood them. The recommendations of the commission have to do mainly with the necessity for broader training for members of the supervisory corps, in order that they may better under- stand the work which their position involves. The survey com- .niission, impressed as they have been by the need of better pro- SUPERVISION OF INSTRUCTION 101 fessional training for the school principals, specifically recom- mends that their tenure in the school system be made to depend upon the securing of more adequate training than they now pos- sess. In order not to work any undue hardship upon them, it is recommended that they be given an extra month's salary, and that they be required, during the next three years, either to attend two summer schools, which may be organized by the board of school trustees in Butte, or that they attend two university sum- mer sessions, and take courses, devoted to the problems of super- vision, which meet with the approval of the superintendent of schools. We feel that we cannot commend too strongly, nor too often, the action of the board of school trustees in bringing to the city system a primary supervisor of broad experience and superior professional training. The commission believes that strong and continuous support of this officer .in her work for the improve- ment of the teaching corps will bring large returns in increased efficiency for the school system. There is need too, we believe, for thorough-going support of the superintendent of schools, by the board of trustees in any constructive policy he may desire to carry out. He should be considered the executive officer of the board, and should carry out the policies which the board has approved. His special pro- fessional training and equipment should be acknowledged, and lie should have the power to select teachers, secure text-books and supplies, place teachers in the system, bring about the organi- zation of courses of study, determine the organization of classes and schools, and direct the collection of data which may prove significant for the management and control of the school system, subject only to the approval or veto of the board of school trus- tees. He must, if his administration is to prove efficient, be held responsible also for the success or failure of his administration, and it is essential that he should be given power commensurate with this responsibility, and then be expected to use it, and use it intelligently. Throughout the system, the success of supervision will de- pend upon the loyalty of teachers to their principals, and of prin- cipals to the general supervisory and administrative officers of the system. There can never be established any adequate system of supervision or administration unless members of the board of school trustees constantly refer any matter of unrest or dispute to the supervisory officer most concerned, rather than to take action, or to support or condemn the one who is unhappy in her work. It is recommended that the rules of the board be so amended (if amendment is necessary) as to preclude an appeal to the board or to any individual member of that body, until any matter of dissatisfaction or dispute has been considered and acted upon by the proper supervisory or administrative officer. 102 SCHOOL SURVEY REPOR T CHAPTER VI ADAPTATION OF THE SCHOOLS TO COMMUNITY NEEDS. I. — New Types of Instruction. It is the function of public education to provide opportunities for training- to all members of the community who are willing or who can be persuaded to secure more education. The older idea that the public school system was concerned only with the training of boys and girls from the ages of 6 to 14 and 16 has, in the more progressive communities, been replaced by a concep- tion of education which is large enough to mclude children of less than 6 years of age, and all of the members of the community beyond compulsory school age who can be interested in further education. We are beginning to understand that those ideals and purposes, which are to be significant in the lives of men and women, are more apt to be developed after the period devoted to elementary-school training than during the eight years devoted to this work. We know that in every city there are men and women who are eager to leani and whose further education will constitute one cf the greatest assets of the community. The organization of our schools which has placed the age of entrance at 6 is accidental, rather than carefully planned in terms of the development of children and the social consideration of the en- vironment in which they live. Kindergartens. — Reference has already been made in Chapter HI, on the Courses of Study, to the necessity for establishing kindergartens in all of the elementary schools. Without seeming unduly critical of the environment in which most of the children of Butte live, it may be remarked that there are few cities in the United States in which the environment of children is as unfavor- able as that found here. If children could have as much as three hours a day, from four to six vears of age, with skilled kinder- garten teachers, it seems to members of the commission that much of that joy which is the prerogative of childhood would be intro- duced into the lives of many of the little children of Butte, who are, even when home conditions are most favorable, happiest in their play and work with other children, under sympathetic direc- tion. Students of education recognize that the kindergarten does much for the social training of children, that the play activities which are to be found there have a very definite educative value, and that the free intercourse among children and teachers does much to lay the foundation for later intellectual development. It is in the kindergarten that many children get their first apprecia- tion of order and system. They acquire habits of industrv and courtesy, traits which are certainly valuable outside of school, and for preparation for their later school work. The folk lore, music, and art which are found in every good kindergarten, lay the SCHOOLS AND COMAIUXITY NEEDS 103 foundation for growth in power of appreciation of those things- which are most worth while in Hterature, music, and the fine arts. Kindergarten teachers are always anxious concerning the physical welfare of children, and it is during the kindergarten period, not infrequently, that corrective treatment can be sug- gested, to the very great advantage of the children concerned, in terms of their later development. In an investigation made in an eastern city durng the past year it was discovered that, of two groups of children from the same economic and social groups, those who had attended kindergartens made better progress and 5 ? J> H 3 o ADMINISTRATION OF TFIE SCHOOLS HS matters except upon his recommendation. When once this is generally understood by the community, the board members will be saved the waste of much valuable time, and the efficiency of the educational service will be greatly improved. The superin- tendent will naturally make some mistakes, but a much smaller number than will the members of the board of school trustees. One important measure of the efficiency and capacity of a super- intendent of schools is his willingness and his ability to assume authority and to carry large responsibilities, and, conversely, one important measure of the intelligence and educational insight of a board of school trustees for a city school system is the degree to which they refer educational matters to the superintendent and entrust him to act for them, and then stand firmly behind him when he acts. The Board's Proper Function. — This does not mean that the board of school trustees will have nothing left to do. On the contrary, there will still be plenty left for them to manage. It simply means that in those matters which are matters of expert judgment, and which no board of laymen is competent to decide, they ought to act only on the recommendation of the educational expert they employ, and ought to trust. It is a sheer waste of public funds to pay $4,000 for an educational expert, and then disregard his advice and judgment. In all matters such as the hygienic aspects of school-house construction, the outlining of courses of study, the selection of text and supplemental books, passing on the competency of instruction or the efficiency of the service in the school department, — matters which no board of laymen is competent to pass intelligently upon, — action should be based only on the recommendation of the expert educational officer of the board. This leaves the board free to attend to the main business which they are elected to handle, and frees them from the hun- dreds of petty annoyances incident to the personal pulls and in- fluences which beset any lay school board which attempts to exercise expert functions. The large problems which a board of school trustees must handle are the selection of expert advisors and assistants, upon which great care should be exercised; the selection of school sites, always with future needs in mind; the erection of school buildings, to see that they meet good standards, and are properly built ; the larger problems of finance, present and future ; the determination of the annual budget ; the approval of expenses incurred ; the final decision as to proposed expan- sions and developments of the public educational system under their control ; and the representation of the needs of the school system before the people of the community, and, if necessary, before the legislature of the state. These larger needs are far more important and far more vital than the smaller and more personal details of school administration to which boards of school trustees too frequently devote the larger part of their 116 SCHOOL SURVEY REPORT energy and thinking, — often to the detriment of the schools under their control. Fundamental Administrative Principles. — By way of sum- mary it may be stated that the chief function of a board of school trustees is to govern, rather than to minutely supervise or direct ; to watch the larger problems of its work, and to trust the smaller ones to the experts it employs ; and to keep themselves free from the personal influences and personal and party pulls which so constantly surround them by placing all personal matters in the hands of an expert who knows what ought to be done, and who has the courage to stand for fundamental educational principles and policies. The school business of Butte is an important part of this community's efforts at self government and self improve- ment, and the purpose for which the schools were created and are maintained is the proper education of the school population of the community. They exist, in no sense of the word, to afford positions for teachers, or contracts for individuals. Positions and contracts are purely incidental and subordinate and should be kept so, in order that the best possible education of the children, for whom the schools exist, may be carried on under the best conditions that are possible. THE TEACHING CORPS 117 CHAPTER VIII SELECTION, TRAINING, TENURE AND SALARIES OF TEACHERS. The Preparation for Teaching of the Present Corps. — Data with respect to high school training and normal school work be- fore beginning teaching in Butte, professional training since en- tering the service in the city system, and experience in years in Butte and elsewhere, were collected on a blank furnished to all teachers, principals, and supervisory officers in the school sys- tem*. The results are given in the accompanying table, No. 21. TABLE 21. Education^ Professional Training, and Teaching Experi- ence OF Principals, Supervisors, Special Teachers AND Teachers in Elementary Schools. 'a .S W -t-j O H High school education obtained — 1 In Butte 2 In other Montana high schools 3 Elsewhere _ Having no college training beyond high school Normal training before entering service in Butte — 1 None 2 In Montana 3 Elsewhere Training since entering Butte I None 2. Normal school 3 College or university Years of Teaching Experience — 1 In Butte — o to 4 years 5 to 9 years 10 to 14 years 2 Elsewhere — o to 4 years 5 to 9 years 10 or more years 3 Total years experience— o to 4 years 4 to 9 years 10 to 14 years 15 to 19 years 20 or more vears 4 I II 3 3 10 o 2 12 7 3 o I I 10 4 93 14 74 161 87 41 53 147 15 19 71 54 19 116 36 II 17 61 47 25 21 97 16 93 175 91 44 71 159 24 25 74 60 33 127 40 13 19 64 49 37 27 *For form of blank, see Appendix. 118 SCHOOL SURVEY REPORT Some of the more important facts are presented briefly below : 1. Of i8i elementary-school teachers who filled out the blank, 93 took their high-school training in Butte, 14 in other cities in Montana, and 74 outside the State of Montana. 2. Eighty-seven of these elementary teachers had no pro- fessional training before beginning to teach in Butte ; 41 had some professional training, varying from 4 weeks to two years, in Montana; while 53 had some professional training, varying from 4 weeks to 2 years, outside the State of Montana, Of the whole number of elementary school teachers reporting (181), only 22 had two years normal school or other professional training be- yond their high-school course before beginning to teach in Butte. 3. Of the elementary-school principals, 6 out of 16 had two years of normal-school or other professional training, beyond the high-school course, before beginning to teach in Butte. Of the special teachers and supervisors, 8 had some professional training before beginning to teach in Butte, and 6 had 2 years or more of professional training before entering upon service in the city school system. 4. The high-school teachers were, as required by a regula- tion of the board of trustees, graduates of approved colleges or universities, but many of them had no specific professional train- ing for their work. It was not possible on the form which was filled out to discover, with respect to high-school teachers, the exact nature or extent of their professional training. 5. 147 out of 181 elementary-school teachers reporting have had no professional training since entering the service in Butte ; 15 have had some normal-school training, usually a summer school ; and 19 have attended summer sessions in connection with colleges or universities. 6. Of the 16 elementary-school principals, 9 have had no professional training since entering the service in Butte, while 7 have attended summer schools in connection with normal schools or universities, since entering their period of service. 7. Out of 35 high-school teachers reporting, 12 have at- tended summer sessions since entering upon their work in the Butte high school. 8. Of all of the teachers in the city school system, 97 have taught in the Butte schools from i to 4 years, 70 from 5 to 9 years, 40 from 10 to 14 years, and 36 for more than 15 years. 151 of these teachers have taught from i to 4 years outside of Butte, 46 have taught elsewhere from 5 to 9 years, and 15 have had experience of more than 10 years outside of the Butte school system. (These data include the high-school teachers.) Conclusions From the Data. — Any careful consideration of these data, especially when taken in connection with the discus- sion of the quality of instruction (Chapter II), and the efficiency of the school system as measured by the achievements of school THE TEACHING CORPS 119 children (Chapter IV), leads inevitably to the conclusion that, as a body, the Butte teachers lacked adequate professional train- ing before entering service in the Butte school system, and that few of them have felt it necessary to secure such professional training since entering upon their duties as teachers in Butte. No city may hope to develop an efficient school system without requiring professional training for all who would teach in the system. In all progressive cities known to the members of the survey commission, no teacher is appointed to a position in the elementary schools who has not had at least 2 years of profes- sional training beyond her high school course. It is, of course, even more important that principals and supervisory officers should have had such training. In the light of these facts, the commission have decided to make a specific recommendation with regard to the professional training of those now in the teaching corps, and most strongly recommends that, hereafter, no one be elected to a position as a teacher or supervisor who has not had at least two years of professional training beyond the high school course. Recommendations for Further Professional Training of the Teachers and Principals. — In order not to work any undue hard- ship upon those who are now at work in the school system, the plan outlined below for providing professional training is recom- mended by the survey commission. As has already been indi- cated, the great majority of the elementary-school teachers lack adequate professional training. These teachers, in their work in the Butte school system, have had similar experiences and faced similar problems and difficulties. It seems, therefore, to the commission, that much might be gained by organizing in Butte, either for the four weeks immediately following the close of the school year, or for the four weeks immediately preceding the opening of the next school term, a summer school in which the elementary-school teachers and principals would be organized in five or six groups, according to the grades in which they teach or the special supervisory work in which they are engaged. Such a school should be under the direction of the superintendent of schools, who should secure professional specialists as instructors. This school should be continued, for at least three years in suc- cession, and every teacher or principal should be required to at- tend two out of the three years. For those who might prefer to attend a summer school of six weeks elsewhere, provision should be made that, upon the approval by the superintendent of schools of the courses which they elect to take in these summer schools, they might substitute the work in summer sessions in connection with normal schools, colleges, or universities for the summer school in Butte. Since those now at work in the school system have, by virtue of the contracts which they now hold with the board of school trustees, earned the salary which these contracts call for, the commission believes that it would be only fair to allow to every teacher or principal attending the summer school 120 SCHOOL SURVEY REPORT in Butte, or elsewhere, one month's salary in addition to that called for by the present contract. We recognize that this would involve an additional annual expenditure of approximately $20,000 in salaries, as well as the cost of the summer school in Butte. The local summer school would probably cost at least $5000. The . commission are of the opinion, however, that there is no way in which $25,000 -could be spent to better advantage from the stand- point of improving the efficiency the whole school system. The Salaries of Teachers. — Any discussion of the efficiency of the teaching corps must take into consideration the salaries paid to the teaching body. The only satisfactory basis for a dis- cussion of the salaries in Butte is to be found by comparing the salaries paid in this school system wich those found in other western cities. The following table presents the data necessary for this comparison : TABLE 22. Comparative Salary Schedules in Western Citees. City Teachers Principals Minimum Maximum Minimum Maximum Salary Salary Salary Salarv 1. Elementary Sch'ls Alameda, Cal Berkeley, Cal Butte, Mont. Los Angeles, Cal Oakland, Cal Pasadena, Cal Portland, Oregon Salt Lake City, Utah San Diego, Cal San Francisco, Cal.... Seattle, Washington Tacoma, Washington 2. High Schools Alameda, Cal Berkeley, Cal Butte, Mont. Los Angeles, Cal Oakland, Cal Pasadena, Cal Portland, Oregon Salt Lake City, Utah San Diego, Cal San Francisco, Cal.... Seattle, Washington Tacoma, Washington *One teacher paid $ 840 840 800 744 780 800 725 600 792 840 840 600 1200 1080 1200 1200 1140 IIOO II 50 850 1200 1500 1020 810 51140 1200 950 1200 1200 1100 1 100 1020 1032 1224 mo 960 1440 1500 1400* 1560 1500 1600 1350 1400 1524 1680 1560 1350 ;i62o 1320 1120 1200 1500 1200 io=;o 1200 1320 1200 1 140 $2160 2280 1540 2400 2400 1900 2150 2004 2260 2040 1800 $1500. THE TEACHING CORPS 121 It is evident from the table given above that the minimum salary paid to elementary-school teachers in Butte compares favorably with that paid in other Western cities, but that the maximum salary paid is lower than that found elsewhere. Recommendations as to Salaries. — It is the opinion of the survey commission that those teachers now in the system should, during the next three years, consider the extra month's salary paid for attendance upon summer school in Butte or elsewhere as a satisfactory increase in salary. This recommendation seems valid to the members of the commission in the light of the mini- mrnii of professional training now enjoyed by the very great majority of the teachers in the Butte school system. For those coming into the school system, who have had professional training and experience, the commission recom- mends a salary schedule, beginning at $900 and increasing auto- matically by $50 increments annually up to $1000. After the salary of $1000 has been reached, further increase should be made to depend upon professional training or special assignment of work. The commission believes that for each of two summer sessions, a further increase of $50 a year in salary should be allowed. (This further increase should also be allowed to teach- ers now in the school system after two summer sessions have been attended, in Butte or elsewhere, for which an additional month's salary has been paid).- - For one year's work in a teachers' college, or other approved professional school, an increase of $100 in salary should be al- lowed, provided that no elementary-school teacher's salary shall be greater than $1200 annually. A Probationary Period for Inexperienced Teachers. — If those who have had a 4 years' high-school course, plus a two years' normal-school course, are admitted to the system without experi- ence, the commission recommends that they be paid, during the first year of service, not more than $750, and that during that year they be regularly employed in the school system as assistant or substitute teachers. When not on duty as substitute teachers, these inexperienced teachers should be placed in the rooms of the most capable teachers in the school system, and should, under the direction of the general supervisory officers, receive careful training for the grade of work which, in the judgment of the supervisory officers, they are best able to perform. Salaries of Special Teachers. — Those teachers who are charged with the responsibility of training, imder the direction of the general supervisory officers, these inexperienced teachers should receive $100 annually, in addition to the salary to which they are regularly entitled as per the recommendations made above, and they should be designated as training teachers. Teachers who are placed in charge of classes for backward or deficient children should receive these positions only after 122 SCHOOL SURVEY REPORT at least six weeks of special training v/ith reference to the prob- lem of teaching such classes. They should be given $ioo in addition to the salary to which they would be regularly entitled, as provided in the schedule suggested above. Salaries of Principals. — In the judgment of the commission, all elementary-school principals should receive a minimum salary of $1200. An increase above that amount, or beyond the salary now paid to them, should be postponed until after two summer sessions have been spent by them in the study of supervisory problems, either in the Butte summer school or elsewhere. After such professional training has been secured, salaries should be increased automatically, by $100 increments annually, up to $1400. For principals who show superior skill as executive officers, whose ability as supervisors of instruction in the training of the teachers under their direction is certified by the superintendent of schools, whose professional interest and enthusiasm is recog- nized by the members of the general supervisory corps, increases by $100 increments up to $1600 should be provided, depending upon the study of supervision and related subjects for at least six weeks in a summer school for each increment of $100. Salaries for High-School Teachers. — The minimum salary paid to high-school teachers in Butte compares favorably with most other western cities. There does not seem to be enough provision for an increase in salary to enable the system to secure and hold the most capable teachers. The commission recom- mends that the minimum salary be put at $1250, and that in- creases of $50 annually be allowed until a maximum of $1400 has been reached. For those superior teachers who are willing to spend at least six weeks in the summer sessions of recognized colleges and universities, in the study of such subjects as may be approved by the superintendent of schools and the high-school principal, the commission recommends that increments of $100 for each summer session, up to $1600, be allowed. For high-school teachers, either now employed or later to be employed, who possess unusual skill as teachers, executive ability, and professional interest and enthusiasm, the commission recommends the creation of the position of head of department, with a minimum salary of $1600 and a maximum salary of $1800, the maximum of $1,800 to be reached by increments of $100 only upon the recommendation of the superintendent of schools and the high-school principal, and only by virtue of the possession of superior professional training, or by reason of study in summer sessions, or in universities during other parts of the academic year, of the problems which are especially important to their several fields. It would seem to the survey commission unwise to plan to create immediately heads of departments for each subject taught in the high-school. Such positions should be held for those now in the system who show unusual professional THE TEACHING CORPS 123 interest and growth, or for those who are later to be brought into the system, on account of superior abiUty and training. Essential Features of the Plan Proposed. — The plan outlined above for establishing salary schedules for teachers of the Butte school system recognizes the fact that it is necessary to pay a minimum salary in order to justify the investment in time and money which is essential for preparation for teaching. The plan further recognizes the need for an increase beyond this minimvmi salary for all teachers who are considered satisfactory workers in the system. The practice of the most progressive cities of the United States has lead to the recommendation that the maximum salary be granted only to those who are willing to secure special professional training, and who demonstrate special ability. It is always unwise to increase, automatically, the salaries of all teachers from the minimum to the maximum, since under such a system there are always those who early in their careers cease to be students,' and consequently cease to grow in efficiency. The provisions enumerated for special training will, we believe, pro- vide in the school system a group of wide-awake, growing, en- thusiastic teachers, who must prove an invaluable asset in improv- ing the efficiency of the school system. 124 SCHOOL SURVEY REPORT CHAPTER IX SCHOOL BUILDINGS AND EQUIPMENT. The problem of school buildings and their equipment had been most carefully studied, and reports had been prepared and presented by the school architect and the county health officer, and by the city health officer, prior to the beginning of the work of the school survey commission. Access to these reports was freely granted, and they were found to be in substantial agree- ment. The members of the commission took copies of the reports with them, upon visiting the majority of the buildings, and found that they could, in the main, concur with the recommendations which had already been made. This section of the report will, therefore, not attempt to recite in detail the deficiencies^ and needs for improvement in each of the school buildings. Such a report would necessarily only duplicate the reports which are already available for the school board and for the citizens of the city. The commission has felt, however, that it was worth while to emphasize certain deficiencies which are common, and to make certain recommendations with regard to future development. School Sites. — It is unfortunate that the school sites which have heretofore been purchased have been so small. The general plan of location of school buildings which has been followed in the past is that of purchasing a corner of a block, and then plac- ing the school building near the property line of the two streets. So long as the streets are unpaved and no street cars pass the buildings the noise is not particularly objectionable, but with the coming of streets paved with brick or stone, and the laying of the street car tracks in concrete, the noise of passing traffic be- comes so great that school work can scarcely be carried on. There are a number of rooms in the present high-school building, for example, where, if the windows are open, teachers are practically compelled to stop work when a street car is passing the building. A school building site should be large enough that the build- ing may be placed somewhat back from the street to escape some of the noise, and also to allow for playground facilities on each side of the building. The recent action taken by the board of trustees in presenting to the people, for their vote, the proposition to spend $150,000 on repairs for school buildings and for enlarg- ing school grounds, in order to provide better playground facili- ties, cannot be too strongly commended. In the future, school sites should never be bought unless there is ample ground not only for the building, but for playgrounds for both sexes as well. Types of Buildings Found. — The common type of school- house construction which has been followed in the past is what may be called the square type, as contrasted with the elongated type, which will be described further on in this chapter. The picture of the Franklin school, reproduced opposite this page, shows the type very well. As this building was reconstructed in n rt ^ ^ ^ 1) o ■J tn O O bJD c <1) T1 (-< ■^ ■;^ •r) (U — -M c o 4_» a; r^ (U rt be U-t ^ ?2 c c x^ (U O i^ M - ^'- ^2 c^^ C cj O '— ' trj OJ .5 C^ be 1 Build ght coi Heavy (See fi O.w O <" ^' Xi. t/^ rt O OJ OJ r^ CO^-vD^ ^■;^ ?^ o s s ,- >+-i c • .n rt 1- — t« i- bb 2 o be ^i_'bc BUILDINGS AND EQUIPMENT 125 1910, it may be taken to represent one of the more recent types of school houses constructed. As will be pointed out further on, a square building does not enable an architect to provide the right type of class-room arrangement, lighting facilities, or the proper arrangement of supplemental rooms, such as will be ex- plained later on. Most of the buildings examined showed many defects from the standpoint of proper school-house construction. The ceilings in many cases are too high, with the result that much fuel is used in heating the buildings, and much more stair-climbing is re- quired. With a high ceiling, either more space must be used for stairways, or the incline of the stairs must be sharper. The fire escapes provided for many of the buildings are poorly arranged, children in a number of cases being compelled to go up steps and through a window in order to reach the fire escape ; whereas the fire escape should be reached, in all cases, through a door provided with patent inside openers. In most of the buildings examined, the ventilating system was so poor that open windows had to be depended upon, in most of the rooms, for ventilating purposes. The air intakes were near the ground, instead of at the top of the building, and the smoked and dirty walls showed plainly that the ventilating system was not a satisfactory one. In a community such as Butte, where so much soft, smoky coal is used, all air sent to the school rooms for ventilating purposes should first be passed through a washing chamber, to remove the soot and dirt from it. The toilet facilities provided in most of the buildings are inadequate, there being only about one-half the number of toilets provided which good school-house construction requires. The ratio used by the best school-house architects is one toilet for every fifteen girls, and one toilet or urinal for every fifteen boys, whereas the ratio commonly found here varied from one to twenty-five to one to forty pupils. The buildings generally w^ere inadequately supplied with drinking fountains, and the basements of many were dirty, and some contained inflammable material which ought to be kept in special rooms. Typical Class-Rooms Found Here. — The drawing on the following page shows a typical class-room as found in Butte. It will be noticed that the lighting is from two sides, that the room is square, and that the room is relatively large. Many still larger rooms are to be found in the different schools. In some of the buildings, and even in some of the recently-constructed ones, rooms were seen in which the light came from three sides instead of two, though two is the almost universal arrangement. The ratio of glass to floor space is not the only factor ; the light must come into the room in the proper manner also. On the new Washington school, which is now in process of construction, these fundamental errors have been repeated in a number of the class rooms, and in two rooms the lighting comes from three sides. 126 SCHOOL SURVEY REPORT l'8" 25 '6" -4.' Z"- o o □ □ Q O □ □ O _0 n D Q O D D o o n n Q O □ n o o □ □ O O V ^o □ nan O Q O O n n n n O o _o n D D n 6 o n n n O Q Q O □ nan O O Q O anna O Q O Q □ □ □ □ 3 A Typical Classroom in Buttc Fig IS. A classroom in the Lincoln school. This is a typical Butte classroom, though there are many which are still larger. The square room, lighted from two sides, and the heavy divisions between the win- dows are the prominent characteristics of the room. The glare of light in such a room is very trying to the eyes. As a result, in almost every room in the city, the resulting glare and shadows must prove most injurious to the eyes of both the children and the teacher. In future buildings, no room should be lighted from more than one side, and the arrangement of win- dows should be as is indicated in the drawing and description given on the opposite page. In nearly all class rooms examined the blackboards were in poor condition, and in general were too high from the floors. Many of the blackboards now in use are shiny, difficult to write upon, and harder to read from. Any that are to be kept in use should be re-surfaced frequently, and as soon as possible slate blackboards should be substituted. The commission wishes to commend most heartily the action of the board of trustees in call- BUILDINGS AND EQUIPMENT 127 ing for bids for a carload of slate blackboards to replace the poorer of the composition boards now in use. The walls in many of the buildings are dirty, and of a most unsatisfactory color. They should be re-tinted, in light and soft neutral tones, and kept in good condition. In all of the buildings, many of the children are sitting in seats which are positively injurious to them. In two rooms noted one-fourth of the children could not touch the floor with their feet. All new seats bought should be of the adjustable type, and janitors should be required, under the supervision of the principal, to readjust, at least twice a year, such seats as may need to be changed. While the non-adjustable seats are still in use, seats of different sizes should be provided in each room, in order to make better provision for the varying physical development of the children who are to be found there. Many of the seats in the city should be scraped and varnished before the next school term opens. Proper Type of Class Room. — Figure i6 shows a good type of class-room, such as is now provided in all well-built school houses. It will be noted that the lighting is from one side, that r< 30' 0" oDoDoDoDoDoDon ononoDoDononon oDoDoDoDoDoDoD Proper Arrangement of Classroom Fig. 16. This room has approximately the same floor area as the other (Fig. 15), but the space is better arranged. The windows are banked on one side, and the narrow divisions between the windows, formed by steel I beams, eliminate shadows. The light comes to all '"'tnils over the left shoulder, and more from the rear than the front. The ceilings should not exceed 12 to 13 feet, and the windows should go to the ceiling. the windows are closely banked, that the heavy mullions which characterize the Butte buildings have been eliminated, and that 128 SCHOOL SURVEY REPORT the lighting comes more from the back than from the front of the room. The room is also built on the dimensions of approxi- mately three wide by four long, so as to secure adequate lighting in all parts of the room. By such an arrangement of windows and seats, every child is provided with adequate light, coming over his left shoulder, and no one has to face a glare of light as at present. Proper Type of Building Needed. — In all future construc- tion, a new type of school building should be provided. A picture of one of the best of our modern types of school buildings is here introduced. It will be seen from the figure that this is a fourteen- class-room building, with eight class-rooms on the front and six on the back, and with an assembly hall projecting from the rear in place of two of the lower class-rooms. The construction is simple, all fancy exterior ornamentation has been eliminated, and the building is designed to provide the best of conditions for the children inside of the building, rather than to produce a fancy exterior to please the architect. The building also is what may be called the elongated type, as opposed to the square type shown in the picture of the Franklin school. A comparison of the two pictures will show what entirely different types of buildings the two are. The picture showing the desirable type also has an ad- vantage in that, at an}^ time, it may be extended by adding four class-rooms on each end. To get a better idea of interior arrangements, we also repro- duce, on the following pages, three floor plans, showing the inte- rior arrangement of another and a slightly larger example of one of the best of our more recent buildings. An examination of these plans will show the many advantages of such a building- over the present type of building in Butte. The lighting arrange- ments are excellent, class-rooms are of the proper size and dimen- sions, but little space is used in corridors, and the building is provided with many of those extra facilities, — such as gymnasiumi, assembly-hall, retiring rooms, teachers' rooms, and special class- rooms — which should characterize any modern school building. By means of two sliding doors, which can be drawn to shut off the lower corridor, the assembly-hall may be used in the evening for community meetings, lectures, entertainments, or any other similar purpose, and with no access to the building other than through the front entrance and the corridor leading to the assem- bly-hall. Such a type of building could be made of the greatest service, in the education of the whole people, in such a community as Butte, and could be made a social as well as an educational center for the community in which it is located. Possible Re-organisations Here. — The survey commission feel very strongly that the school trustees have been making a fundamental error in erecting so many small buildings. If the financial records, pointed out as desirable in Chapter XI, were available, the commission has no doubt but that these small buildings would be found to cost much more per capita for main- C O H -5 _o 1»-1 rt 1-. 3 r;i; rt pq ■ji; 4=: f-i OJ o i-' '^' o o r! -z} ^^ o u ^ W rt p T) ti *-> bf -*-' x: ^ b/] J > rt ^5 be hr o c 2 < s o ^J ^ r~l o ■2?^ o BUILDINGS AND EQUIPMENT 129 u oir.-~< Ha b o c.2^ o nd t ion ning u en C O ^^ '^^ o dJ d gir ven nual en en != o ^ rt O g a en .^% " o n ^ 1- a O ^_ y ^...•..v..-..l i V :: o 132 SCHOOL SURVEY REPORT tenance than the larger buildings. That they are not so efficient educationally there can be little question. The board of trustees ought, in the future, to plan to erect buildings containing sixteen to twenty class-rooms. If one room is used for a kindergarten, one for a special type of school-room, and provision is then made for domestic science and manual training in the buildings, but sixteen class-rooms would be left, for ordinary class-room purposes, in a twenty-class-room building. This number of rooms is desirable, not only from the standpoint of economical administration, but also because it gives an opportunity for the proper grading and classification of the pupils. The building for which floor plans have been introduced is such a twenty class- room building, not coimting the assembly hall or basement. A number of the school buildings in Butte are in such poor condition, and are so poorly constructed from the standpoint of proper standards of school-house construction, that they ought, within a short time, to be replaced by a better type of building. As fast as can be done, larger buildings, modeled somewhat after the type shown, should be erected to replace these smaller build- ings. The Greeley school is now in such a condition that it ought to be abandoned soon, and it is almost a waste of money to try to repair it. The Lincoln school, also, ought soon to be replaced by a better type of building. What is true of these two schools is true, in a certain sense, of some of the others, and it is probable that, within the next ten to fifteen years, the school authorities of Butte will need to replace a number of their buildings by schools of a better and more modern type. When the time comes for such reconstructions, the board of trustees should build larger units, and fewer buildings, and should try to obtain a full block of land for each of the larger schools. The building could then be located in the center of the block, removing it somewhat from the noisy street, and giving ample playground facilities. It would be much more economical to abolish some of the smaller schools and transport the pupils, even at public expense, to these larger central buildings, and by this means the education which is pro- vided for the children could be very materially improved. Intermediate-School and High-School. — In another part of this report the survey commission have made recommendations for the establishment of kindergartens, special classes for back- ward children, and manual training and domestic-science centers in each of the larger schools (Chapters I and VI), and also have recommended the creation of intermediate schools (Chapter III). Should the board of school trustees consider it desirable to follow the recommendations of the survey commission in the first of these, it will be found necessary to create a central intermediate school in order to care for the children of the upper grades whose rooms must be vacated if the other types of schools are to be put in the present buildings, most of .which are already full. Should this be done, it would then seem to the members of the commission to be advisable to establish, in the present high-school BUILDINGS AND EQUIPMENT 133 plant, the intermediate school recommended in Chapter III, and to secure for the high school a new site, and to put up a new building better adapted to high school needs. The present high school plant is already too small, and in many respects is a very unsatisfactory building. There are not enough class-rooms to meet the needs of the present teaching force under a normal schedule of work. A number of the class- rooms are extremely dark, and are not fit for class use. In a few, electric lights have to be burned, even on sunshiny days. Some of the halls are dark, many of the rooms are noisy, and the general arrangement of the building is not one well adapted to the best high-school instruction. If the intermediate-school were located in the present high-school plant, it would be possible to abandon the rooms which are most unsatisfactory, and to make such alterations and repairs as might be necessary to put the present building in a reasonably satisfactory condition. The pres- ent board and office rooms could then remain as they are, without the expense necessary to remove them to other quarters. With the present high-school population, and with the in- crease that may be anticipated during the next few years, it seems to the members of the commission extremely unwise to spend any more money in trying to enlarge or add to the present high- school building. As is pointed out in Chapters I and III, the high-school should materially enlarge its influence in this com- munity, especially by the development of more technical work, and this cannot be done in any satisfactory manner in the present quarters. If a new high-school site of not less than a block of land were obtained, reasonably near to the center of population but removed from noisy car lines, and a modern high-school building were constructed on it, there could be placed in this building a large gymnasium and assembly hall, and the building could be made the main center for the intellectual life of the whole community. The building should be provided with good library facilities, and the needs of night-classes as well as day- classes should be kept in mind in its construction. With the proper development of the elementary-school system, the provision of intermediate schools, with differentiated courses, and the erec- tion of a high-school building suited to the educational and social needs of this community, it is not unreasonable to expect that, within a few years, there would be an attendance of fourteen to fifteen hundred in day-classes and two thousand in night-classes. The influence of such an educational institution on the community can scarcely be over-estimated. The members of the commission are not unmindful, in mak- ing the recommendations given above, of the expense which would be involved in carrying out this program. They have found themselves, however, unable to suggest any other solution which seems to them to promise adequate school facilities for the chil- dren of Butte. Janitor Service. — The janitor service in the different build- 134 SCHOOL SURVEY REPORT ings appeared to the members of the commission to be faithful but not always intelligent. The janitors seemed to be willing and attentive, but in many cases not to understand how to secure the best results. In two buildings members of the commission found janitors sweeping without using the sweeping compound supplied by the boar-d. Though the need for using the sweeping compound was pointed out to both principal and janitor, in one case, a second and later visit to the building found the janitor following the same old methods. The fumigation of the buildings required by the regulations of the board was, in general, carried on in such a manner as to be of practically no value. In one building, three out of seven of the water closets used by the boys were found with the seats off, and in a number of cases the closets would not flush. When asked about it both janitor and principal said they had not known of the defects before, but apparently no effort had been made to remedy the defects. Many of the desks in the school rooms were in a bad condition of repair. The need of some intelligent supervision of the janitiirial force, clothed with proper authority, was evident to the members of the commission, and they wish to recommend that the scluicl clerk, who is nominally in charge of the janitorial force, be given, subject to the co-ordinating supervisory authority of the superin- tendent of schools, as is pointed out in Chapter VII, supervisory control over the janitorial force of the city, and that he be given authority and power to enforce such regulations as may seem ad'.isable to secure more efficient service than is now ren.lered in the different school buildings. For the sake of thorouglily cleaning the buildings, making needed repairs, over-hauling the ventilating systems, re-surfacing and re-varnishing desks, and the like, it seems to the members of the commission that it would be advantageous to employ the janitorial force throMphont a portion or perhai^s all ci ihc ^ un mer vacation. . PUBLIC SCHOOLS OF BUTTE, MONTANA FORM 1. THE SCHOOL CENSUS BOOK CODE NUMBERS TO BE USED IN COLUMNS INDICATED BY • AUTHORITY FOR DATE OF BIRTH 1. Dirlll Certifiiali. 2. Baptismal Certificate SEX 1. Hoy 2. Ciil RACE 1. Wliire 2. Negro .'!. Moniirolian BIRTHPLACE OF CHILD OR OF FATHER 1. United States 5. Italy 3. Poland 1.!. Noiway-Sweden 2. Ireland C>. England 10. Scotland 14, ('hina 3. Germany 7. Canada 11. I'ranee ir,. Jliseellaneoiis 4. Russia 8. Ilunsary 12. Boimiania and iinknonii KIND OF SCHOOL 1. Iliblic 2. Parocliial 3. Private HOW EM 1. In stores (cash boys, eiranii boys, etc.) 2. Ill office (clerlf, office boy, etc.) 3. Slessenger (outdoors, c. eg. Telc- grapb, delivery service, etc.) PLOYED (!. Street trades (newsboys, ped- dlers, b00tl)lacl;s, etc.) 7. Sliilled trades (painters, papcr- liangcr.s, plasterers, plumbers, metal workera, etc.) S. .Service (servants, waiters, house- maids, etc.) !). Houscworit at home. 11). Miscellaneous ami unknown NOT ENROLLED AND NOT EMPLOYED 1. To be enrolled in Sep- tember 2. Incapacitated 8. Temporarily unem- ployed 4. Illegal non-attendant DEFECTIVE 1. Blind 2. Crippled 3. Deaf 4. Speech Defect 5. Epileptic C. Backward ■ 7. Tubercular 8. Other Defects Day Date Book 3. Parent's Statement worl;) , .0. Factory work (laundries, foun- dries, mills, etc.) Page NAME OF CHILDREN DATE OF BIRTH B-l SEX * RACE BIRTHPLACE OF PARENTS OR GUARDIA^ OR FULL NAMS OF MOTHERI RESIDENCE ENROLLED NOT ENROLLED BLOCK MO. DAY * CHILD * FATHER MOTHER NAME • HOW • EMPLOYER NAME AND ADDRESS • DEFECTIVE — ~ ___ __ __ ~ — — ' — — CENSUS. RECORDS AxND REPORTS 135 CHAPTER X CENSUS, RECORDS AND REPORTS. The schools of the city of Butte exist for the education of all the children of the city. Only as these schools reach and give to the children of the city at least a complete elementary-school education, if not a high-school education, are they fulfilling their function and performing their full service. The efficiency of the schools of Butte can be judged, therefore, from this point of view, only when it is known to what extent they are reaching all of the children of the city of school age, and to what extent they are holding them in school. The Present School Census. — The only source of knowing the number of children in the school district served by the schools of Butte is the school census. This census is taken annually between the first day of September and the first day of October, imder the authority and direction of the clerk of the board of education. The school census collects the following information: Names of all children and youth between the ages of six and 21 years, giving age, date of birth, sex, name of father, name of mother cr guardian,^ residence of parent or guardian. Though not reqnired by law, similar data are collected for all children under six years of age; also, a separate tabulation is made for deaf. Mind and feeble-minded persons. In a word, the school census as now taken includes an enumeration of all persons in the district under ■.i\ years of age. The purpose of the school census is to provide the basis for the apportionment of the state school fund. We are informed that little if any use is made of the school census in determining to what extent the children enumerated are actually to be found in the public, private, or parochial schools of Butte. That is, the school census is not used as the basis of determining the actual number of children that should be enrolled in the schools. While the school census of District No. i is perhaps as com- plete as such census generally are, and the form in which it is tabulated is excellent, yet in all probability, even if it were de- sired, the school census, as now taken, would not serve as an accurate base of determining the number of children within the district which should be in school. Improving and Amending the School Census. — The prime purpose of a school census is to furnish accurate and complete information with respect to all children and youth who should be in school, and to supply a fact basis for the enforcement of the compulsory education law. Information to Collect. — To this end, we believe, the school census should collect the data as called for in Form No. i.* In *A series of sis forms "were prepared, to illustrate this chapter of the report, and these are to be found in the Appendix to the report. 136 SCHOOL SURVEY REPORT this form, in addition to the information now collected in the school census, emphasis is placed upon the nationality of children, on how the children and youth of the district are employed, and on the enrollment and non-enrollment of school children. Also, provision is made for memoranda on houses which are closed and from which no children are reported. These memoranda serve as a simple basis of re-enumeration. The form proposed to be used in the school census includes all the information re- quired by the State Law of Montana. This information could be tabulated and presented in such form as is prescribed by the State Law, while the additional information provided should be tabu- lated and made useful in the determining- of educational policies and the enforcement of the compulsory education law. Time to Take the Census. — At present, the school census is taken between the first of September and the first of October. If a school census is to serve its primary purpose, it should be taken earlier in the summer, and should be completed some weeks prior to the opening of the schools. When taken during the summer, the attendance officers can be employed in the work. Should this be done, it would not only decrease the expense, but probably in- crease the thoroughness of the census. Moreover, when the census enumeration is taken prior to September, it is possible to complete the census file hereafter mentioned, and tabulate material so as to be useful in determining, at the opening of the school year, the number of children who should be, and who are not, in school. To be sure, the present law prescribes the date of taking the census. It would seem possible, however, to secure such changes in the law that the enumeration might be taken at the time when it would be of the greatest usefulness. Card Census File. — While the information called for in Form No. I may be thus entered in the books prescribed by the State Law, for practical purposes the census is kept on Form No. 2, the School Census Card. A card is filled out for each child of school age, and these are filed in the office of the superintendent of schools, alphabetically, within the public or private or parochial school attended. A separate file is provided for all children who, for any reason, are not attending school as required by law. This file becomes the working basis of determing the number of children within the district who should be in school and a basis of enforcing the compulsory education law. That the information contained on these census cards may be up-to-date and accurate at the time the file is first instituted, all schools, public, private, and parochial, should be required to file, in the office of the clerk of the board of education, informa- tion with regard to each child enrolled in the respective school or institution at the end of the school year. With this complete file of children, both in attendance and non-attendance, each school, whether public, private, or parochial, is notified of the pupils that should be in their school at the opening of the first UST NAME SCHOOL CENSUS CARD PUBLIC ELEMENTARY SCHOOLS, BUTTE. MONTAMA FIRST NAME DATE OF BIRTH Mo. Day Year ■^ PHYSICAL OR MENTAL DEFECT S (Check/) Blind Crip' Id Deaf Speech Epilep- Defect tic Back- ward Tuber- cular Boy Girl White Col'd AGE SEPT. 1 Parent's first names or Guardian's full name Mong'l RESIDENCE Child Father NATIVE COUNTRY SCHOOL ATTENDING DATE ADMITTED Mo. Day CAUSE OF NON-ENROLMENT * Year Use the following code numbers in columns desig- nated by * Date of Birth : 1. Birth Certificate. 2. Baptismal Certificate. 3. Parent's Statement. Cause of Non-Enrolment : Cause of Non-Enrolment: 1. To be enrolled in Sept. 2. Incapacitated. 3. Illegal Non-Attendant. 0^ u. III Q HI Q Z UJ < >- _i q: UJ q: O u. -1 O o I o CO o -I m 3 a. Q UJ O z UJ 1- < UJ CQ O 1- -J o o I o CO o n CQ D Q. a z > < UJ _l u. O UJ CO D < o UJ o z. Ul Q CD UJ cr ^ UJ 2 Ul O Z UJ 9 CO Ul Ul Z ]il]H fllOJ UJ o z UJ Q CO UJ cc UJ S < z h to UJ U. n z < \- Z O o UJ K h- Q < CO -1 Q. < z QC UJ u. CO z < a 1- z O Q UJ O CC < I o CO Q CO _l Q. Q. vm fllOJ cc UJ u. <» z < DC h- D o I $ o Ul G CC < I o CO D CO _l a. ■o .5 a ^ a a o o .a ro aa*.2S! M M^ g « E . . . . a CI tu 1J.-2 CD t^ 00 o •':; "O^ O OB 2^ ^ 5 I 111 D !>.S — s-a o o .S Q4 ^ Ul ^ •3 "SSs^as u 2 Sii; o o «H 0) » 2*2^ c a ^ tH cq CO ■<:*< Oi o CENSUS. RECORDS AND REPORTS 137 semester. This list is, in turn, checked by the respective prin- cipals, and the pupils not reporting to their respective schools or to any school supplies the list of pupils who should be immediate- ly looked up by the attendance officers. Keeping the Census File Up-to-Date. — In order that the cen- sus file may be kept up-to-date, the principal of each school, whether private, parochial, or public, should, at the close of each week of the school year, send to the office of the city superin- tendent of schools a school census card (Form No. 2), for each child admitted who has not been previously in attendance in any school in Butte. In addition, the principal of each school building-, whether Dublic, private, or parochial, should, at the close of each week, send to the office of the city superintendent of schools, on Form No. 3, (a) information with regard to pupils admitted on trans- fer, (b) information with regard to pupils discharged on transfer, (c) pupils discharged without transfer. Educational Use of the Census File. — As suggested above, the census file, after the taking of each school census, supplies exact information with regard to all children of school age in the district ; also, with regard to the number actually attending school, and the number not attending for unlawful reasons, as well as the number not attending for lawful reasons. When this file is checked, at the beginning of the school year, as against the chil- dren actually in attendance, the school officers are supplied with definite lists of^pupils who should receive their immediate atten- tion. Through supplementing the census, by the means sug- gested, during the course of the school year, census officers are provided with definite information with regard to children that are in transit, by reason of being transferred from one school to another, or dropped out of school for unknown reasons, and these lists supply the attendance officers with the information which enables them to follov/ up, in addition to cases actually reported by principals, all cases of non-attendance, where there is doubt. It is only by thus establishing a complete census file, and supple- menting it during the course of the year, that it is possible to know the actual number of children in school, and the extent to which the schools of Butte are actually keeping the children in school. Enforcing the Compulsory Education Lazv. — The primary purpose of a complete school census is, as previously indicated, to supply the basis of enforcing the compulsory education law. Present Effectiveness of Attendance Service. — While there are no records available which indicate whether or not the schools are reaching all of the children of school age in the communitv, there are available facts which prove that, once children are" en- rolled, they are kept in regular attendance. This is shown in Table 23, on the following page. 138 SCHOOL SURVEY REPORT oil LO On C^ t^ ^ t^OO CO CO w M "* M CWO t>. in J c o u M h-l p— IMI— IMMh-IHHMOl oZi 00 ^JXTf^tOt^ONlXC^ M C^ lOOlVO^ On 1^ LiKq; ssaj MC^lMMCSCOC^COCSCO COVO N CO M 10 ? en puB 091 u 12 091 CS lOVO 00 00 00 10 0\ ThvO CO CO 10 CO On t-H M HH M CM ^ ^ ^ 6^ M-l pui3 o9i M >< oSi < .2 fc CD ^s c^ COM 0\^ xn ^ u^o M M co"^-^ LTjVO ol/i uBq:| SS9J OOMrOMQi-ioiOlOOC^LO ^<1 LiBq; SS91 0000000 c ■5 W (N H- l-( H 1^-. S ^-^P^S^SC-i c n m n c z PI i > s > X i 1 1 2 5 v> o < ID n z c m J) in z r c > 3. z 0) r ? m 8 u n in Ul z >* H m ID •< — — — — — - - — — — f ■n U) I n > VI — 11 r r i in - ^ r > 0) I f Hf * > >7 1? 3° * s p > -< > HO HO HO O I O r H H > O I CENSUS. RECORDS AND REPORTS 139 The attendance of pupils in these two typical elementary schools by periods was : Attending less than 80 half-days 2.5 per cent Attending 80 and less than 90 half-days 5 per cent Attending 90 and less than 100 half-days 9 per cent Attending 100 and less than no half-days 5 per cent Attending no and less than 120 half-days 8 per cent Attending 120 and less than 130 half -days 1.3 per cent Attending 130 and less than 140 half-days 2.6 per cent Attending 140 and less than 150 half-days 5.5 per cent Attending 150 and less than 160 half-days 14.6 per cent Attending 160 and less than 170 half-days 50.1 per cent Attending 170 half -days, the entire session 20.0 per cent This is excellent school attendance, and is evidence of the earnest work of teachers, principals and attendance officers in looking after, and seeing that children are regularly at school. School Records Needed. — While it might be held that the present excellent attendance in the public schools is ample proof of the efficient enforcement of the compulsory education law, the survey commission are, however, of the belief that the effective- ness of this enforcement can be still further increased, and that, essential to such enforcement, certain records are indispensable : 1. An accurate record of attendance of any school, kept by the teacher — that is, an accurately-kept daily register or blotter. 2. A uniform method of referring cases tO' the attendance officers, by teachers and principals. 3. A uniform system of reporting back cases to school auth- orities, by attendance officers. 4. A uniform system of principals' reporting to the super- intendent cases referred to the attendance ofificers, and the re- sults of the investigations. 5. Uniform system of reporting to the superintendent the cases investigated by the attendance officers, and the results of their investigations. The Teacher's Register or Blotter. — There is used, in the public schools of Butte, a loose-leaf daily blotter. The use of this blotter causes the teacher to copy, during the course of the year, the names of all the pupils in her class not less than ten times. In place of this loose-leaf blotter, we would recommend the use of Form No. 4, Attendance and Scholarship Card. If deemed desirable, a loose-leaf blank could be substituted for the card. Not only would the substitution of either the card or loose- It af form obviate unnecessary copying of names, but such a form, would greatly facilitate the transfer of pupils, the individual attendance and scholarship card being sent to the school to v/hich the child is transferred, in the same way as the admission, dis- charge, and promotion card is now sent. The adoption of this attendance and scholarship card would not only supply the data 140 SCHOOL SURVEY REPORT on attendance needed for the enforcement of the compulsors'^ edu- cation law, but it would make possible a simplification of the present monthly report and summary for the semester. The simplification of the present blotter, monthly report, and sum- mary for the semester is greatly to be desired. Moreover, the attendance and scholarship card to be filed at the end of each school year Avith the principal, would serve as a cumulative at- tendance and scholarship record for the child during his entire school course. Report of Principal to Attendance Officers. — The report of cases by principals to attendance officers is now made orally, only the name and the address of the child, as a rule, being given. That the present effectiveness of the attendance service may be increased, we believe that a uniform method of reporting these cases should be introduced. To this end, we recommend the in- troduction of Form No. 5, Absent Report. This is a simple form, giving merel}^ the requisite data for the location of the child, statement of amount of absence, during the period in question, the date of attendance officer receiving and making a report on the case, and the result of the investigation. Such a record not only serves as the basis, on the one hand, for the attendance officer reporting his work to the superintendent, but also as the basis of the principal keeping the official records of the school and of making her report to the superintendent. Report of Principal to Superintendent. — It is required at the present time that the principals report, monthly, to the city super- intendent on truants and non-attendants referred to the attend- ance officers. The report includes the name, age, and grade of pupils ; also, whether or not the child is a truant or merely a non- attendant, and the result of the investigation by the attendance officer. While these reports are sent regularly to the office of the city superintendent, they are by no means filled out either uniformly or completely. To the end that the principal's monthly report to the superintendent on truants and non-attendants shall be made uniform, and that the data included therein shall be complete, we recomm.end the substitution of Form No. 6. Report of Attendance Officers to Superintendent. — All re- ports at present made by truant officers to the superintendent are essentially verbal reports. To be sure, each attendance officer keeps a memoranda of the cases handled by him, but, so far as we know, no formal reports are submitted by the attendance officers. Such formal reports are, however, required by law of attend- ance officers. To the end that systematic record may be avail- able on the work of the attendance officers, more particularly that there may be at hand evidence of the effective work now be- ing done, we recommend the adoption of Form No. 7. Necessary Co-operation. — In order to determine whether or Am REPORT ON ABSENCE PUBLIC ELEMENTARY SCHOOLS, BUTTE, MONTANA Last Name First Name SCHOOL Grade SIGNATURE OF ATTEND- ANCE OFFICER Residence REPORT OF PRINCIPAL REPORT OF ATTENDANCE OFFICER REPORT SESSIONS ABSENT DATE R ECEIVED DATE FILED Absence Lawfnl Absence Unlawful Date of Prob- able Return Date Com. to ~ FROM TO Ind. School MO. DAY MO. 1 DAY Mo. DAY MO. DAY MO. DAY MO. Day 1 2 3 4 USE CODE NUMBERS ON BACK OF THIS CARD DESIGNATED BY -^ <^>^L^«du»e)E>d; en O 2 >-' H- 1-- H- "a n ' ' ' ' "• -^ ^ o 5- ^ - 5 o; g. ^ 3 o a ^ c^ 2 2- £• - S ^ ^. o o -^ 2 °?^2_^.^. 5"^^ 3 s- a en o o ri) ri 3 o 0- S' cr (T> f O n> Ti 5! >-t 00 tJ o o 2- 3 B:- 3 3_ g, o V:; >< o c D- 3 fD 3 o tn l-h 3' (/) rn uu n Ij P i" ■-1 Cu ri) p. C 1/1 rr* n> ^ ^ FORM VI. PUBLI •\T!^OM .rlTTU© Nam^ Total PRINCIPAL'S MONTHLY REPORT ON ABSENT PUPILS FOR MONTH OF_ PUBLIC ELEMENTARY SCHOOLS BUTTE, MONTANA - — — SCHOOL CASES FOR INVESTIGATION REPORT OF PRINCIPAL Name of PupU u 5 = •v 3 ^ p » « RECEIVED J ° 5 A — ABSENCE LAWFUI. B — DBOFFEO PCPLL C — ABSENCE UNI-AWFUI, Total No. Cases XnTestlsatod A— B— C CDnunlttiFd to IndDstrlal School New 1 Old I Total l£ H s 1 1 1 I 1 1 a 1 3 1 4 5 1 6 JTot. 1 a 3 4 5 • "l-l 10 11 la 13 Tot. 1 a 3 Tot. Ho. DAT ' 1 1 1 1 1 1 1 I 1 1 j ] 1 1 1 1 1 1 1 1 1 1 i ! 1 1 1 ! 1 1 1 1 1 1 i 1 1 1 1 1 1 1 1 1 1 1 1 1 1 ! 1 1 1 1 1 III 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 i 1 1 ! 1 ! I ] 1 i 1 ! i 1 1 1 1 1 i 1 1 1 1 1 1 1 1 Total 1 1 ' 1 1 i 1 1 1 1 1 1 1 1 1 ! 1 i 1 1 LL 1 1 1 Absence Lawful : 1. Illness of child. 2. Illness or death in family. 3. Quarantined. 4. Poverty. 5. Court. 6. Inclement weather. Dropped PDpU: 1. Under compulsory school age. a. Incapacity (physical). 3. Incapacity (mental). INTERPRETATION OF CODE NUMBERS IN COLUMNS * Indifference to school work. Iieft to go to a private school. Left to go to a parochial school. Removed from the city. Illneas or death in family. Economic status of family (obtained employment certificate). Economic status of family (not obtaining employment certificate). Committed to the Industrial School. Kept at home for private tuition. Unknown. .\bsence Unlawful; 1. Truant child. a. Parental neglect. S. Illegally employed,. iASO^iflS t»auq LntoX I f.lfi Izi ^X) P g ffq P fORM V PUBl H3r4-=^30 3Di^ AC \HAT140M 3TTU8 L l: ^J^J..J....W- 8HMUJOD H! m 30' MONTHLY REPORT OF ATTENDANCE OFFICER PUBLIC ELEMENTARY SCHOOLS BUTTE. MONTANA FOR MONTH O F_ CASES FOR INVESTIGATION REPORT OF ATTENDANCE OFFICER ATTENDANCE OFFICKH 8CHOOI, nS 1 BBCBIVBD t« 1 A — ^BSEMCB LAWFUL B — DSOPPED PCPIL C — ABSENCE UNLAWFUI, Total Mo. Cases Inveetlgnted A— B — C Committed to iDdnstrlal 1 Old Total (^ E4 o 1 1 1 3 1 1 3 1 4 1 5 1 Tot. 1 a 1 3 4 1 5 1 8 1 7 1 8 1 8 1 10 H 1 la 1 13 Tot. Ill 1 II 1 2 3 Tot. Soliool 1 1 i i i i 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 ! 1 1 1 1 1 1 1 1 1 1 1 i 1 1 1 1 1 1 1 1 1 i 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 i 1 1 1 1 1 1 1 1 1 1 1 1 1 1 i 1 1 1 1 1 1 1 1 1 1 1 1 1 1 I 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 i 1 1 1 1 1 1 1 1 1 1 ! 1 1 ^_ i ! 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 ! 1 I 1 1 1 1 L 1 Absence Lawfiil : 1. Illness of child. 2. Illness or death to family. 3. Quarantined. 4. Poverty. 5. Court. 6. Inclement weather. Dropped Ptipil: 1. Under compulsory school age. 2. Incapacity (physical). 2. Incapacity (mental). INTERPRETATION OF CODE NUMBERS IN COLUMNS* Indifference to school work. Left to go to a private school. Left to go to a parochial school. Removed from the city. Illness or death In family. Bconomlc status of family (obtained employment certificate). Economic status of family (not obtaining employment certificate). Committed to the Industrial School. • Kept at home for private tuition. Unknown. C. Absence Unlawful: 1. Truant child. 3. Parental neglect S. Illegally employed.. -t C ^ ^ o n> 3 5 H H) >— ejOOHOe YWAT1/13M3J3 Dijaus AOira i»i^ I'iO ??:>? CENSUS RECORDS AND REPORTS 141 not all the children of school age of Butte are in school, there is need of a complete census. To make this school census effective, it is necessary to have records of all children who are actually in school, and of current changes in school enrollment. At present, there are no reports made to the board of education with regard to the children enrolled in either private or parochial schools. It is incumbent by law. Section 1104, of the General School Law of the State of Montana, that the principals of these schools make such reports. That is, the principals of these schools shguld be requested to comply with this law, and to provide the clerk of the board of education with the same data on enrollment and changes herein, as is requested from the principals of public schools, using, in all cases, the same blank forms in making said reports. If the children of Butte are to receive the education which they should receive, it is necessary to have an effective enforce- ment of the compulsory education law. So far as the public schools are concerned, this law seemingly is well enforced. No facts are available with regard to its enforcement in private and parochial schools. If the compulsory education law is to be enforced most effectively, the same records and reports on ab- sence, truancy, etc., should be required of the principals of private and parochial schools as the commission recommends should be lequircd of the principals of public schools. Since it is possible, under the law, to require such informa- tion of private and parochial schools, we feel that the informa- tion will be readily given, and that not only will this information be readily given, but when it is understood that the purpose of this information is to secure to every child of Butte the education to which he is entitled, all concerned will willingly co-operate to this end. Simplifying School Records. — ^There is need, as we have seen in Chapter I, of collecting additional information on the actual workings of the schools, if there is to be at hand an ade- quate fact basis for measuring the efficiency of the schools, and on which to base administrative action. On the other hand, cer- tain of the present reports should be simplified, such, for exam- ple, as the teacher's monthly report and the principal's monthly report. The need of simplification is particularly evident in the case of determining the promotion average of pupils ; also, in the record scholarship card, which is sent to parents monthly. Much of the detailed work involved in determining the promotion aver- age of children and in making out the record scholarship card could be avoided, if the monthly record of the child for each of the several subjects should be regarded as cumulative. That is, if the scholarship mark given for the last month of the school term should be recognized as the teacher's estimate of the effort and achievement of the child for the school term, it could be substituted for the present promotion average, which is now de- termined at such a cost of energy and time on the part of teachers. 142 gJIIOOL SURVEY REPORT. Summary. — To summarize, there is need, in the opinion of the survey commission, of making the present school census more complete; this school census should then be made the basis of checking the number of children who are illegally absent from school, whether public, private, or parochial, and of enforcing the compulsory education law. To this end, we believe, that a school census as outlined above should be taken and that the above-suggested forms for reporting absence to attendance offi- cers, the monthly report of principals on absence cases, and the montblv report of attendance officers, be introduced. Should these recomm.endations be put into effect, taking into considera- tion the present excellent service of teachers, principals and at- tendance officers and the present excellent attitude of the com- munity toward school attendance, there is no reason why children in Butte should be absent from school any considerable length of time without lawful reason. Moreover, if the above sugges- tions with regard to simplifying present reports are put into operation, teachers will be relieved of considerable unnecessary detail, whereas if the recommendations in Chapter I with regard to data on school activities are adopted, there will be at hand not only information which will supply the basis for improving methods of instruction and of adapting the course of study to the needs of the children, but also of judging of the efficiency of in- struction and of the work of the svstem as a whole. FINANCE AND ACCOUNTS 143 CHAPTER XI FINANCE AND ACCOUNTS. I. — Costs of the School System. The members of the survey commission have spent much time in trying to calculate and compare the costs for education in the Butte school district with costs for education in other cities where costs are comparable, but they have finally been compelled to abandon the attempt to make an accurate comparison, and for the reason that accurate comparisons are not possible with the present system of accounting. Difficulties Encountered. — In the first place the Butte school district (District No. i) is many times larger than the city proper, and the property valuation of the school district is about twice that of the city itself. The total population within the city is given by the United States census for 1910, and also has been officially estimated for 191 1, but how many people live in the Butte school district the survey commission were not able to ascertain. In the absence of such information the per capita cost for schools, based on the total population of the school district, could not be determined. On the basis of the expenditures for 1912-1913, which were $380,593.00, and an estimated total popu- lation in the school district of 75,000, the per capita cost, based on total population, would be approximately $5.07. In the absence of any population data, the commission have been compelled to use the figures given in the last printed volume of Financial Statistics of Cities, issued by the United Census Bureau of the Census*. This volume contains detailed statistical data as to the expenses of all cities in the United States. The census figures show a total expense for 191 1 of $250,000 for education in Butte, and a per capita on total population cost of $5.42. The members of the survey commission have conferred with the clerk of the board of school trustees, the county assess»Dr, and the county treasurer, but have not been able to arrive at any Ijetter estimate, though they feel that the United Census figure? for Butte are too high, for the year taken. Per Capita Costs. — Using, however, for purposes of compari- son, the United States Census figures, even though they are manifestly too high, and comparing the cost for education here with the cost in the same twenty cities used in Table 2, Chapter I, in comparing the percentages of children under 15 years of age in such cities with conditions in Butte, we get the following table, showing comparative costs in ten western and ten eastern cities. *Financial Statistics of Cities. 1911 (Washington, 1913). 144 SCHOOL SURVEY REPORT TABLE 24. Showing Comparative Costs for Education, Based on Total Population. Per capita cost for Percent of city Total Cities. expenses for population schools schools of city I. Western Cities — 1 Pueblo, Colo 4-31 5.20 5-24 541 36.5 per cent 33.9 per cent 54.2 per cent 32.9 per cent 44,395 83,743 43,973 39,578 Tacoma, Wash Lincoln, Neb. San Diego, Cal Butte, Mont. 5.42 31.8 per cent 39,165 Davenport, Iowa 543 39.6 per cent 43,028 Topeka, Kansas 547 5.80 6.62 47.0 per cent 38.0 per cent 47.2 per cent 43,684 104,402 99,777 Spokane, Wash... . Salt Lake City, Utah... Des Moines, Iowa 7.16 49.8 per cent 86,368 Berkeley, Cal 7-51 54.0 per cent 40,434 2. Eastern Cities — Fall River, Mass 4.06 34.4 per cent 119,295 Scranton, Pa 445 47.2 per cent 129,867 Hoboken, N. J 5-27 39.0 per cent 70,324 Butte, Mont 5.42 31.8 per cent 39.165 Bayonne, N. J 5.60 48.1 per cent 55,545 East Orange, N. J 6.15 34.8 per cent 34,371 Yonkers, N. Y 6-35 32.9 per cent 79,803 Springfield, Mass 6.86 34.9 per cent 88,926 New Rochelle, N. Y 7.04 37.5 per cent 28,867 Mt. Vernon 7-25 354 per cent 1 30,919 Newton, Mass 8.67 35.8 per cent 30,806 When the much higher costs for labor and materials in Butte, the' :materially lower pay for teachers in eastern cities, and the rtiuch larger number of children to be educated in the ten eastern cities, as pointed out in Chapter I, are all taken into considera- tion, even the high United States Census figure for Butte seems low. It must be said, however, that of the cities selected for com- parison with Butte, 75 per cent are noted for the high quality and large efficiency of their schools. It would, of course, have been possible to have selected cities for comparison with Butte which would have made a more favorable showino". II. — The System of Accounting. Other Difficulties Encountered. — When the surve}^ commis- sion turned from comparative costs to the cost of education in the schools within the district, much the same difficidty in obtaining anv information that reallv told anvthins- was encountered. FINANCE AND ACCOUNTS 145 Though the financial records in the office of the school clerk are kept according to the forms outlined for school districts in the State of Montana, the records are not kept in the form which should be provided for a city of this size. The forms in use are suited to a country district or a villag-e, rather than to a city such as Butte. From the records as kept, though they are kept very neatly, and apparently very accurately, little or nothing could be told, vrithout much labor in recalculating the items throughout, as to what instruction, operation of plant, and plant-maintenance were actually costing per pupil or per room in the schools of Butte. Some tabulations made indicated differences as large as $5.00 per year per pupil for instruction alone, in two of the schools. This may be all right or it may not, but the present methods of account- ing do not tell anything as to existing conditions. These differences are only what might be expected here. As it pointed out in the chapter on the school plant (Chapter IX), small buildings are much more expensive to operate than large ones, and the instruction in them is less efficient. If good cost- figures were available there is little doubt but that the board of school trustees would at once abandon the policy of erecting them. If figures were available it would doubtless be found that the per capita cost for education in such schools as the Brookside is twice as great as in such a school as the Emerson, with a much less efficient type of education provided, and that the cost in such schools as the Madison or Harrison is twenty to thirty per cent higher than in the larger city schools. The books at present show almost nothing as to the actual costs for instruction in the schools, or in different schools, and the survey commission have been compelled to depend, in part, in making their recommenda- tions for the reorganization of the building equipment of the dis- trict, on their knowledge of the financial experiences of other cities having somewhat similar conditions. No one in particular is to blame for the present condition, as the books are kept ac- cording to state forms, and according to the plan which has been followed for many years. Recommendations. — The survey commission strongly recom- mend that the school clerk be instructed to prepare a new form of cost-record book, using the 'standards for accounting approved by the United States Bureau of Education and the United States Bureau of the Census, and that he then reorganize his methods of cost-accounting so that each item of expenditure will be dis- tributed, in its proper place and proper proportion, among the different schools and administrative offices of the district. We herewith append a form (Form 8) showing the kind of bookkeep- ing which the commission recommends. With such a system of bookkeeping it would, at any time, be possible to determine the per-pupil cost for instruction, the per-room cost for any form of service or supply, or the per-buiid- 146 SCHOOL SURVEY REPORT ing" cost for any item of maintenance or upkeep and to check wastes wherever they may be found. The survey commission have been led to feel that there are many small wastes in the school system which could be remedied, to the advantage of the schools, if only a good accounting system were in use from which the school clerk or the superintendent of schools, or the two acting in co-operation, could from time to time check up the different cost items for the different schools. If such figures were avail- able, to mention one item to illustrate the value of such account- ing, the survey commission have no doubt but that the present practice of building small schools, near together, would be at once discontinued, because of the greater cost for instruction and main- tenance which would be shown by such a system of accounting. The survey commission wish to add that they have gone over the matter in some detail with the school clerk, and have pointed out to him the value of such a system of bookkeeping and stan- dard-form accounting, and that he is both willing and anxious to reorganize the books according to the standard forms and indi- vidual school-record plans suggested to him, and as shown by Form 8. CONCLUSIONS AND RECOMMENDATIONS 147 SUMMARY, CONCLUSIONS AND RECOMMENDATIONS. [The following Summary, Conclusions and Recommenda- tions was given to the press at the time the report was completed and submitted, and is now reproduced here as a summary and digest of the preceding chapters.] It is not possible to summarize adequately the results of the survey in a few pages. The conclusions which have been reached and the recommendations which are made depend, in every in- stance, upon observations which are recorded or upon data which was collected, and which appears in the tables to be found in the report. In order for anyone to understand the conclusions which are reached and the recommendations which are made, it will be necessary to read the entire report. To this end, the survey com- mission recommends that at least five thousand copies of this re- port be printed, as soon as is possible, in order that all interested citizens may have a chance to study carefully the findings of the survey commission. It may not be out of place to suggest that all who read the conclusions which follow withhold judgment as to the validity of the findings of the commission, and of the recommendations which are made, until it is possible to examine carefully the data which furnish the basis for these conclusions and recommendations. The Classification and Progress of Pupils. — The facts with respect to the classification and progress of children in the scliool system were collected from all schools of the district. These data show clearly that there are a very large number of children in the Butte schools who are too old for the grade in which they are found. A careful examination of the tables which appear in this report will show that one out of every two children in the school system is over-age for his grade. Many of these over-age children are one to two years over-age, but almost two hundred are three or more years over-age for their grade. In the body of the report wnll be fotmd a discussion of the causes of this retardation. It is more important, in this connection, to note that the commission recommends that special classes be established for those who are backward or mentally deficient. These special classes will prove helpful not only in making it possible to give proper training to those who are backward or deficient, but also in removing from regular classes children who interfere with the proper teaching of those who are normal. The commission also recommends the establishment of a summer elementary school, in order that many children who would otherwise fail of promotion may make normal progress in the school system. A careful study of promotion and non -promotion in the school svstem, the data being recorded in tables in the body of the report, shows an extraordinarily large number of non-promotions. These non-promotions seem to the m.embers of the survey commission 148 SCHOOL SURVEY REPORT to be due to the fact that promotion is based almost wholly upon the ability of children to recall great numbers of facts, rather than upon their capacit}^ to undertake the work of the next grade. A reorganization of the courses of study and a change in the type of examination given is most urgently recommended, in order that the amount of non-promotions may be decreased. From the data collected concerning the size of elementary school classes, the commission has discovered that conditions are most favorable in Butte. Indeed, they seem almost ideal as com- pared with other cities in the United States. The relatively small class which is common in the school system suggests the possi- bility of adequate instruction for all children, and of regular ad- vancement for all who are systematic in attendance, provided the recommendations made above concerning special classes and for changes in the courses of study and examination systems are car- ried out. It was also discovered that the size of recitation sections in the high school was small, and that it would be possible to in- crease, by as much as 50 per cent, the attendance upon the high school, in many of the subjects taught, without increasing the present teaching corps, provided an adequate plant were available. The Quality of Instniction. — In the body of the report will be found a discussion of the criteria which seem to the members of the commission fundamental in any discussion of class teach- ing. In the light of these criteria, the commission has found that the teaching in the Butte schools is, in general, good with respect to drill work. They are of the opinion, both from the standpoint of their observations and from the tests given to children, that the work involving thinking has been neglected. This seems to be due, in considerable measure, to the fact that the type of exami- nation required has led to a cramming of facts rather than to an insistence on the solving of problems by pupils. There is need for better understanding upon the part of the teachers of the im- portance of lessons whose end-point is to be found in appreciation of literature, art. and music. The technic involved in this kind of teaching seems not to be well understood by the teachers of the school system. The commission was most favorably impressed by the rela- tionship of good will and accord which seems to exist between teachers and pupils throughout the school system. In the opinion of the commission, the teachers employed in the Butte schools are, with few exceptions, women of good ability, who are anxious to do their best work for the children. They believe, however, that these teachers are not now realizing anything like their full possi- bilities, and that much greater efficiency in teaching may be ex- pected to result from careful supervision, and from more ade- quate professional training. Courses of Study. — As has already been suggested, the courses of study need to be carefully revised. There is at present entirely too much emphasis upon formal drill work and the re- CONCLUSIONS AND RECOMMENDATIONS 149 membering of facts which are recorded in books. It is the primary purpose of education to develop power of independent thought upon the part of children, rather to cram them with facts. When- ever a course of study or an examination system emphasizes the importance of remembering, rather than the possible growth in power of thinking and of appreciation, teachers invariably limit their work to the preparation of children for these factual tests. It is the opinion of the commission that the courses of study need to be improved by introducing kindergartens, by providing more adequate work in nature study and elementary science, by increas- ing the time devoted to the manual and household arts, and by laying greater stress upon literature, music, and drawing. It is also suggested in the body of the report that there would be great advantage in organizing an intermediate school for chil- dren who have completed the sixth grade. This school would permit of some degree of specialization during the three-years' course, and would in all probability not only afford better educa- tional opportunities for those who remain in school, but would also increase the number of those who stay for nine years of school work. The Achievements of Pupils. — One of the most important parts of the work of the survey was the measurement of the achievements of pupils m the school system. Standard tests in spelling, arithmetic, penmanship, and composition were given. It was possible by using these tests to compare the results achieved in Butte with those which are secured in other school systems. In spelling, in the fundamental operations of arithmetic, (addi- tion, subtraction, multiplication, and division), and in penman- ship, the results secured in Butte were as good or better than those found in other school systems. This is exactly what would have been expected by one who knew of the emphasis placed upon drill work in the school system. The results in the reasoning tests in arithmetic and in English composition indicated a very decided weakness in these fields of work. The commission ven- tures to suggest that it is only when emphasis is placed upon thinking and upon the development of the individuality and self- expression of children, rather than upon formal drills and fact- getting, that satisfactory results can be expected in reasoning or in expression of thought. The Supervision of Instruction. — The board of school trus- tees are to be strongly commended for their action in securing the services of a woman of broad training and experience for the position of primary supervisor. In the judgment of the members of the commission much of the success of any school system de-r pends upon the quality of the supervision exercised by the super- intendent, and the general and special supervisors. Even the best of teachers, possessed of the most adequate professional training, need the help and inspiration which comes from the especially capable people who should be placed in supervisory 150 SCHOOL SURVEY REPORT positions, for the sake of demonstrating superior methods of work, of criticizing the class-room procedure, of measuring the success of a teacher's work by the accompHshment of the children taught, and of securing the co-operation of all teachers in the develop- ment of the policies which characterize either the whole school system, or some particular builcing or other division of it. In the work of supervision, the principal's office should be of very great importance. Those who now hold these offices m Butte are, in the opinion of the survey commission, eager to fulfill their obligation to teachers and to pupils. They need, however, better and broader conceptions of their work, and to this end it lias been recommended that they be required to secure, in summer sessions, more adequate professional training. The Adaptation of Schools to Community Needs. — The schools of Butte have, in the past, concerned themselves chiefly with the instruction of children of elementary- and high-school age, and during those hours which are commonly recognized as constituting the school day. The schools have offered, for the most part, a single program of work. The commission recom- mends : ( 1 ) The organization of kindergartens. (2) The establishment of special classes for those who are Taackward or deficient, and for non-English-speaking children. (3) The wider use of the school plant, including elementary- and high-school work in classes to be opened, either before regu- lar school hours in the morning, during the late afternoon, or at tiight. (4) That much greater opportunity for play and recreation Tje provided, both within the buildings, wherever that is possible, and by the purchase and equipment of playgrounds. (5) That the physical welfare of school children be pro- vided for through the establishment of adequate health super- vision, involving medical inspection and visiting nurses. The Administration of Schools. — A careful study of the law imder which the school district has been organized makes it clear that the board of school trustees is vested with large authority in the control of public education. The commission recommends that there be a clear differentiation between the legislative func- tions exercised by the board of school tnistees, and the executive powers vested by them in the superintendent of schools, and the school clerk. There can never be any adequate administration of schools without the placing of large responsibility upon executive officers, chosen by the board of school trustees, and this responsi- bility can never be adequately met except when the board vests in the superintendent of schools authority commensurate with his responsibility. Selection, Training, Tenure, and Salaries of Teachers. — Most of the teachers who are now at work in the elementary schools of Butte have had inadequate professional training. Only 22 ele- CONCLUSIONS AND RECOArMEXDATIONS 151 mentary-school teachers out of i8i reported have had a minimum of two years of normal-school or other professional training be- yond their high-school course. Only 6 of the i6 principals of the elementary schools have had this minimum of professional train- ing. The commission most strongly recommends ihat hereafter no teacher be employed in the school system who has not had a four years' high-school course and two years of professional train- ing. The commission recommends that, in order that these teach- ers may realize their greatest efficiency, a summer school be opened in Butte for the professional training of teachers ; that all teachers be required to attend this school, or some other recognized normal or university summer school ; and that they be paid an additional month's salary for such attendance. A similar recom- mendation is made with respect to elementary-school principals. After a careful study of the salaries paid in other western cities, the commission has recommended that the maximum salary to be paid to elementary-school teachers and to principals be increased, but that this maximum salary be made dependent, in every case, upon the securing of additional professional training. School Buildings and Equipment. — The reports which have recently been made by the school architect, in co-operation with the county health officer and by the city health officer, were care- fully examined by the survey commission. They were found to be in substantial agreement. The members of the commission then made a careful study of the buildings on their own account. Their findings and recommendations may be briefly summarized as follows : (i) In the past the school sites which have been bought have been too small, and the buildings not infrequently undesir- ably located. (2) The type of building constructed is not satisfactory. In almost every case the lighting is from at least two sides, with wide pillars between the windows. In modern school-house construc- tion lighting is always arranged from one side only, with very narrow pillars between the windows. (3) There has been a tendency to construct too many small buildings, which are uneconomical and unsatisfactory from the standpoint of providing proper educational facilities. It is doubt- ful whether it is ever economical to construct a building with less than from 16 to 18 rooms. This is especially necessary if proper provision is to be made for the manual and household arts, and for special classes for children who need special attention. These larger buildings should contain an auditorium, in order that they may be used outside of regular school hours, as a community center. (4) The buildings now in use can be best adapted to the needs of the community by segregating, in the present high-school plant, the children of the seventh and eighth grades and the first year of the high-school, as an intermediate-school, in order to 152 SCHOOL SURVEY REPORT make room for kindergartens, special classes, and for work in in- dustrial and household arts, as suggested above. It seems to the members of the commission that some of the buildings — notably, the Greeley school — are so inadequate and unhygienic that they should be demolished, rather than be repaired and added to. It is the judgment of the commission that it would be unfortunate to add to the present high-school building. A new high-school site should be found, and a new building, containing a gymnasium and auditorium, as well as the ordinary laboratories and class-rooms, should be constructed. (5) The janitorial service is faithful, but not always intelli- gent. It is recommended that the clerk of the board of school trustees, in co-operation with the superintendent of schools, be given larger authority with respect to the work of the janitors, and that they be given, under his direction, such training as will ensure more satisfactory service. Census, Records, and Reports. — The present school census has been taken as provided by the state law. The commission recommends a more satisfactory system of recording the census data, and means of keeping the census file up to date, and the collecting of such additional information as will make the census more significant, from the standpoint of its possible educational use. The forms for amending the census are given in the body of the report. Recommendations are also made with respect to the methods of reporting of principals to attendance officers and to the superintendent, and concerning the report of the attendance officers to the superintendent. Some suggestions are given con- cerning the possibility of simplifying the present system of school records. Costs and Financial Records. — The commission found it diffi- cult, from the data which are available, either in the school offices or in the report of the United States Census, to make any ade- quate calculation as to the cost of education in Butte, compared with other cities. Such approximate comparisons as it seemed advisable to make are found in a table of comparative cost, which is given in the body of the report. In consultation with the school clerk, and with his hearty co-operation and approval, a better system of school accounting has been recommended, and a form for such is included in the report. With this more adequate sys- tem of accounts it will be possible for the board of school trus- tees to know concerning the cost of any particular school, or type of educational activity. With this information at hand, it will be possible for the board to adopt such policies as promise a maxi- mum of economy and efficiency. In conclusion, the survey commission wishes to emphasize, for all who may read these conclusions, the necessity of studying carefully the whole report. In the several chapters presented will be found the records of observations made and the tabulation of CONCLUSIONS AND RECOMMENDATIONS 153 (lata which was collected. It is only when the reader has avail- able these records of observation and these collected data that he can hope to judge fairly concerning the conclusions of the' report, or to be reasonable and open-minded in his acceptance or rejec- tion of the recommendations which we have made. APPENDIX BLANK FORMS USED IN GATHERING DATA I. FORMS USED IN COLLECTING DATA 157 EDUCATION AND EXPERIENCE OF THE TEACHERS IN THE BUTTE PUBLIC SCHOOLS. 1. Name 2. Permanent home address 3. Position in School. 4. Please indicate in the appropriate spaces the amount of school- ing you had before enterin^^ the service at Butte — Where? City & State No. of Full Years Parts of Years (No. Mths) Summer Sessions (No. Wks.) Year of Gradu- ation High School Normal School or Training School 1 1 1 i College or Univer- sity ^ 5. Please indicate in the appropriate spaces below the amount of schooling you have had since entering the service at Biitte — Where ? City & State No. of Full Years Parts of Years (No. Mths) Summer Sessions (No. Wks.) Year of Gradu- ation Normal School or Training School College ! or Univer- j sitv 1 ] 6. Experience : a. Date of entering service in Butte (Month) (Year) b. Number of years of service in schools of Butte : (i) As teacher _ _ _ _ years (2) As supervisor, or special teacher - years (3) As principal _ _ _ _ years (4) Total - - - - - years c. Number of years of service in schools outside of Butte : (i) In Montana _ _ _ _ years (2) Elsewhere _ _ _ - years (3) Total _ - - - years d. Total number of years of experience in teaching, super- vision, etc. - - - - - years 158 < < O SCHOOL SURVEY REPORT ^ Q P H in pa ^ W <^ U O S9SSBQ JO J9qiun^ IBiox tn 5^ .5 en ^ ,, '-^ bjO kV ^= o o ^ i3 rt ^'' rt en rt ^ O a; ^ M^ rt t^ ^1- ^ ^ > ° ^ ^ — — c7] o N S 1 ^' J -^ S c? >-* en c c/1 IS H rt 'r^ w Ui rrt P u m u ^ ■*-> C OJ 'X3 ^ c^ c ^ ^c ^3 t-1 ;-i a en G >t- ^=1 G 1— 4 53 "T3 U o o a g g S bo "5 ^ S o in. a be 3 - .: — -p- " • K )1 IKS REGISTER Ol R PAYMENTS Expense of General Control 1 o t: ftHM Payments of interest, miscella- neous non-expense payments si i ^ 3~ t- GRAND '§:? TOTAL l^^ > — 3 •> E Office of Superin- tendent in Schools t g £-2 1 I.I ■ ._ RECEIPTS AND EXPENDITURES ■ Instruction Operation OF o fenoi o ^ 03 .S " CS 0! M 4, 1 c ■0 — l!l CO 'S. C C .2 — c q 'is-:, C^ O) ?^ c. m g 0; 1 "Z •I a- 0. "§ 0! 1 — ^ — rrrrr- 191 OTHER PAYMENTS "^ S A S GRAND TOTAL REMARKS SCHOOL DISTRICT No. ONE. City of Butte, Mo«ta„a; for Month ol 1< 5L __ -A NT AUXILIARY AGENC — PLAN! Maintenance of p ES Miscellaneous Expense OUTLAYS OTHEf PAYMENTS S w i i ll' ■3^1 IP 1 P' ti-i •3 111 ^1 = fS £^ 1 ii - II 6 c J 7i |j^ 1 1 •5|i III' ■ "1 ■= 1 ^- n t. 1 ilf GRAND TOTAL '"°" " ^ i j" .. L . 7» RECEIPTS AND E >ENDITURES Instruction Operation of ^ HI '11 il °1| 11" P ii ft |i il II 1 1 i 1 1 1 _ _=. -191_ - p i OTHER PAYMENTS 4 2|| °1 Ell Mi s ^ GRAND TOTAL REMARKS i i ' 1 SCHOOL DISTRICT CLERK'S REGISTER OF RECEIPTS AND EXPENDITURES • — ^ — '" — Expense of General Conthoi. Instruction , . , , Operation of ill III 1* c c 2-c- ll o 1 ll =11 II ll ^ w 1 E Jll 1 i 1 BROUGHT FORWARD WEBSTER HARRISON GRifJvLEY GARFIEI^D I'RANKLIN HIGH EMERSON ULAINE MANUAL TRAINING DOMESTIC SCIENCE— Sewing DOMESTIC SCIENCE— Cooking LINCOLN SHERMAN MONROE McKINLEY JEFFERSON (IRANT INDUSTRIAL BRICKSIDE THREE MILE FIVE MILE BASIN LITTLE BASIN _ -191_ - p ' OTHER PAYMENTS .1 i 1 t ° III" IT, SI sis- GRAND TOTAL REMARKS SCHOOL DISTRK :t: No. ONE, City of ButtG, ]V lont ana. for Montk ( .f 191_ PLANT MAINTENANCE OF PLANT AUXILIARY AGENCIES MISCELLANEOUS EXPENSE OUTLAYS OTHER PAYMENTS III S 1° 1% 1 g 1 g If 3 i H 1 ^ o = g ^ S Is Equipment of new buildin-s find grounds ii'ii lilt i III Is ~|| „ 1 GRAND TOTAL REMARKS 1 1 1 A LIBRARY OF CONGRESS 019 885 272 7