LB 2826 .5 .N5 fl6 1920 Copy 1 BOARD OF EDUCATION THE CITY OF NEW YORK Report Submitted by the Super- intendent of Schools WILLIAM L. ETTINGER IN SUPPORT OF THE MAJOR ITEMS OF THE BUDGET ESTIMATE FOR THE YEAR 1921 \MoO \ / BOARD OF EDUCATION THE CITY OF NEW YORK REPORT OF THE Superintendent of Schools ON THE BUDGET ESTIMATE FOR 1921 -Hi BOARD OF EDUCATION ANNING S. PRALL, President GEORGE J. RYAN, Vice-President J(JHN A. FERGUSON Mrs. EMMA L. MURRAY ARTHUR S. SOMERS M. SAMUEL STERN FRANK D. Wn.SEY SUPERINTENDENT OF SCHOOLS, WILLIAM L. ETTINGER September, 1920 ^7 af OCT 20 W2Q FOREWORD ' The Budget of the Department of Education comprises the largest item in the total budget for which The City of New York must make financial provision. It frequently happens that when the Educational Budget is under consideration by the financial authorities there is a great deal of uninformed criticism of educational expenditures. As the general public has no detailed knowledge of the costs of education, the opinion frequently prevails that many requests of the Board of Education are exorbitant or unwarranted. Such public opinion is due in large measure to the fact that our school system is so vast and its activities so varied that very few are at all cognizant of what our schools are doing or trying to do. This attitude is also due in part to the fact that in the past the public has not been suffi- ciently informed as to the problems, the accomplishments, and the needs of the school system. This report has been prepared in order to throw the light of publicity upon our Budget Estimate for 1921, which necessarily is an intricate finan- cial statement, more or less bewildering in its formidable array of figures. This summary cannot, because of space limitations, discuss or explain all of the multitudinous items that go to make up the total budget estimate. The report deals only with the major items. It is hoped, however, that the facts herein contained will serve as a sufficient background for the financial requests contained in the budget. Financial ability approximating the amount requested is absolutely necessary if progressive educational policies are to be carried out, for it should be borne in mind that in the final analysis all our financial problems viewed in proper perspective are biit the reflection of educational and physical problems. Figuratively speaking, the substance of every educational and physical problem casts an inseparable financial shadow. The preparation of the departmental budget is a huge task that has engaged the attention of the Board of Education and many of its staff for many weeks. The present Board of Education has regarded the preparation of the budget as a function in which the public must be interested. There- fore, both this year and last the Board of Education has held a series of conferences open to the public and the press, at which were discussed and considered the requests of the heads of the various activities. At 'these hearings, which were held daily, representatives of the city financial authori- ties were present and all organizations and individuals interested in the several activities were allowed to participate. The chief desire of the Com- mittee in conducting the public hearings and of the Superintendent of Schools in issuing this report is to place within the reach of all concerned with the welfare of our schools the salient facts and basic policies on which the Budget Estimate is predicated. A fully informed public may always be trusted to give generous support to a progressive educational program. Respectfully submitted, William L. Ettinger, y Superintendent of Schools. September 10, 1920. I— EDUCATIONAL BUDGET BASED ON EDUCATIONAL PROGRAM Underlying our budget estimate is the educational program of our sys- tem. Any consideration of the educational budget must mean a considera- tion of our educational policies and our educational problems. In the last analysis every educational problem is a financial problem and every financial question ultimately resolves itself into a question of educational policies and aims. What Are the General Aims of Our School System? 1. The primary aim of our school system is, briefly speaking, (a) to provide adequate and appropriate educational opportuni- ties for every child in our city of compulsory school age (from 7 to 16 years) ; (b) to provide similar opportunities for every child of preschool age (from 5 to 7 years) and also for our youth from 16 to 18 or 21 years who may desire to avail themselves of further educational advantages. 2. A secondary aim of our educational system is that involved in our extension activities. Such activities seek (a) to provide appropriate facilities for education to those, either youth or adult, who were unable to avail themselves of the edu- cational opportunities ofiFered during their childhood ; (b) to aid in the assimilation into our social and political organi- zation of those newcomers into our midst who have come from foreign lands ; (c) to provide proper facilities for recreation, social develop- ment and cultural impj-ovement to those in our community who may desire to profit thereby. To realize each of the above general aims, definite, specific educational policies have been formulated in detail by the Board of Superintendents and adopted by the Board of Education. Such educational policies represent not so much the personal belief s of the superintendents but rather their interpre- tation of the educational ideals and demands of the community. That such ideals and demands coincide with the ideals and demands of progressive cities throughout the country indicates that they are in consonance with the progressive educational thought and practice of the present. To make possible the realization of our aims funds are required to furnish not only grounds, buildings and equipment, but also to provide teachers, supplies, fuel and other items needed in the conduct of our schools. In the use of our funds and in the request for further financial support neither extravagance nor parsimony but economy and efficiency should control. Our problem is not to find out how cheaply the schools may be operated but how wisely our funds are expended. Our public schools are the peoples. What they are today is what the pubhc has required. What they are to be in the future is also dependent upon what the pubhc may demand. There is no doubt that pubhc opinion in the hght of full information will most readily approve of proper financial support for our schools in order that the standards of our schools may not only be maintained at their present level, but also raised still higher and that our educational facilities may be still further developed. 11— PROVISIONS OF THE EDUCATION LAW RELATING TO ANNUAL ESTIMATES OF THE BOARD OF EDUCATION Article 33a, Section 877, prescribes the following, relative to the annual estimate of the Board of Education: 1. The Board of Education shall prepare annually an itemized estimate for the ensuing fiscal year and file the same on or before the first day of September. Such estimate shall be for the foUowmg purposes : (a) The salary of the superintendent of schools, associate, district or other superintendents, examiners, directors, supervisors, principals, teachers, lecturers, special instructors, auditors, medical - inspectors, nurses, attendance officers, clerks and janitors and the salary, fee or compensation of all other employees, apponited or employed by the said board of education. (b) The other necessary incidental and contingent expenses including ordinary repairs to buildings and the purchase of fuel and light, supplies, textbooks, school apparatus, books, furniture and fixtures and other articles and service necessary for the proper maintenance, operation and support of the schools, libraries and other educational, social or recreational affairs and interests under its management and direction. The provisions of this section in regard to the purchase of light shall not apply to a city having a population of a million or more. (c) The remodelling or enlarging of buildings under its con- trol and management, the construction of new buildings for uses authorized by this chapter and the furnishing and equipment there- of, the purchase of real property for new sites, additions to present sites, playgrounds or recreation centers, and other educational or social purposes, and to meet any other indebtedness or liability incurred under the provisions of this chapter or other statutes, or any other expenses which the board of education is authorized to incur. 7. In a city which had, according to the federal census of nine- teen hundred and ten, a population of one million or more such esti- mate shall be filed with the board of estimate and apportionment. (a) If the total amount requested in such estimate shall be equivalent to or less than four and nine-tenths mills on every dollar of assessed valuation of the real and personal property in such city liable to taxation, the board of estimate and apportionment shall appropriate such amount. (b) If the total amount contained in such estimate shall ex- ceed the said sum of four and nine-tenths mills on every dollar of assessed valuation of the real and personal property in such city liable to taxation, such estimate shall, as to such excess, be subject to such consideration and such action by the board of estimate and apportionment, the board of aldermen, and the mayor as that taken upon departmental estimates submitted to the board of estimate and apportionment. (c) The board of estimate and apportionment is authorized to make additional appropriations for educational purposes authorized by this chapter. The general school fund shall consist of all moneys raised for the payment of the salaries of all persons em- ployed in the supervising and teaching staff, including the super- intendent of schools and all associate, district and other superin- tendents, members of the board of examiners, attendance officers, supervisor of lectures, lecturers and director and assistant director of the division of reference and research. The special school fund shall contain and embrace all moneys raised for educational pur- poses not comprised in the general school fund. The general school fund shall be raised in bulk and for the city at large. The board of education shall administer all moneys appropriated or available for educational purposes in the city, subject to the provi- sions of law relating to the audit and payment of salaries and other claims by the department of finance. 8. A board of education may, to meet emergencies which may arise, submit a special estimate in which items for extraordinary ex- penses may be submitted to meet such emergencies. Such estimate shall contain a complete statement of the purposes for which the items are requested and the necessity therefor. The same method of pro- cedure shall be followed in submitting such estimate and such esti- mate shall be subject to the same consideration and action as is re- quired in the submission, consideration and action upon the regular annual estimate submitted by a board of education. The common council in such a city shall have power to make the appropriations requested by a board of education in such special estimate. 879; — 4. Bond Issue — In a city having a population of one mil- lion or more, the board of estimate and apportionment may in its discretion annually cause to be raised such sums of money as may be required for the purposes enumerated in subdivision c of section eight hundred and seventy-seven of this act, in the manner provided by law for the raising of money for such purposes. (p u V Z o 55 -J _ \F> ^S^° t^ J 2 ": 9 " u * 5<0 ^7i o 0/ > 2i5 ^ 5 ^ s lll^« ?: 1 1 1— 1 > § 1 > lU _j Cl- o 1 X o ! 4 z. 1 1- iS^ ! -^ iL ,0 0^ 5w lU ^ i 1 tf) lO ^ c^ < z 1 o g UJ 1 a ci a 1 3 1 u ' d o 0. >|jU5^ S^gh: m^*o ® (Vl 9 o ii. z o g u D a lU iL o D O O lU !u o D JJ D a D ^J if) 0^ (0 a (A n aj D n u J e o < lO t o (D ^ ^ < 10 III— BUDGET ESTIMATE FOR 1921 The annual estimate of the Board of Education is prepared in accord- cince with the foregoing requirements. The budget estimate proper (see page 1 of Budget Estimate 1921) is arranged according to three classes of purposes enumerated in the law, Section 877-1 and also according to the two funds prescribed by Section 877-7, General School Fund and Special School Fund. (a) For salaries. (b) For expenses for maintenance and operation (other than salaries). (c) For purchase of sites, etc., and construction of buildings, etc. (For meeting any other indebtedness or liability.) The total requirements for the school system for 1921 as formulated in the budget estimate amounts to $146,322,050.11. Of this amount $9,- 877,652.16 is estimated as the sum receivable from the State and $136,444,- 397.95 is the sum requested from the city. This total amount is divided among the following main items : Purpose. Amount. Per Cent, of Total. 1. For Current Maintenance and Operation — (a) Salaries of all persons employed.. . . (b) Expenses other than salaries $77,911,213 27 13,992,901 66 53.25 9.56 ' Total $91,904,114 93 46,920,327 95 7,497,607 38 62.81 2. For Capital Outlay — New Sites and Buildings 32.06 3. For Redemption of Special Revenue Bonds and Tax Notes (authorized or requested for 1920) 5.12 Grand Total ... $146,322,050 11 99.99 Budget Estimate For Current Operation and Maintenance Limiting our attention to the estimate of requirements for operation and maintenance it is seen that the total required is $91,904,114.93, of which $9,877,652.16 is estimated as„the amount receivable from the State, leaving $82,026,462.77 as the net amount requested from the City for this purpose. The budget estimate of the Board of Education for current operation and maintenance is arranged under the two funds. General School Fund 0.6% T ».e% . GENEEAL CONTROL 3.6% C05TO^ INSTauCTION 8I.O % 1931 BUDGET t5TI/v\ATE EOB. CURQ.E/ST OPEQATIO/S ACCOBDI^Q TO MAIN ITE:M5 Or EXPE:AID\TUD-E: 12 and Special School Fund, according to a classifications, as follows : number of main headings, or Item. Amount. Per Cent, of Total. General Control and Administration Cost of Instruction $3,261,739 86 74,519,827 22 1,439,474 12 5,279,038 58 6,828,977 77 575,057 38 3.55 81.08 Auxiliary Agencies 1 57 Operation of School Plant 5 74 Maintenance of School Plant 7 43 Miscellaneous 62 Total , $91,904,114 93 99.99 Eighty-one per cent, of the gross total requested for current operation and maintenance goes to instruction with 1.6 per cent, for agencies and activities of an auxiliary character. The next largest item is that for main- tenance of school plant, which includes repairs to buildings and replace- ments and calls for 7.4 per cent, of the total. For operation of school plant the amount is 5.7 per cent, of the total. The items for general control which comprises educational administration, business administration and enforcement of the compulsory education laws make up 3.6 per cent, of the total. Detailed explanatory schedules and tables form the bulk of the printed estimate. Summary schedules for the General School Fund and for the Special School Fund are found on pages 9 to 14 inclusive of the printed estimate. - ■ 13 IV— DAY ELEMENTARY SCHOQ-LS Budget Items 1921 Estimate. 1920 Apportion- ment. Increase. Estimate Schedule Number. I — General School Fund — Salaries of Teachers, et'al.— 1. Present Organiza- tion — (a) for persons per- manently employed Mar. 31, 1920.... $55,324,060 81 1,074,688 90 No. 2— p. 18 (b) for persons to fill vacancies existing on Mar. 31 No. 3— p. 18 2. For Substitutes for absent teachers 3. For enlargement of System — New positions and special items $56,398,749 71 842,126 00 1,215,062 42 No. 6— p. 22 No. 4— p. 19 No. 5— p. 20 Gross Total $58,455,938 13 . . 1,970,252 58 Less salary accruals, etc Net Total $56,485,685 55 $34,123,671 96 $22,362,013 59 II — Special School Fund — 1. General Educational Supplies and Equip- ment $2,038,350 77 *$1,686,069 85 $352,280 92 No. 15— p. 35 *The item indicated above is the amount requested for 1920. Tliis amount was included in a lump sum request which was reduced in the final budget. The first concern of our school system must be to provide educational opportunities for every child in our city from seven to sixteen years of age. The compulsory education law requires the attendance of 5uch chil- dren and provides penalties for non-compliance with the law. The corollary of this is that the school system must provide for these children first and foremost. The elementary schools serve all the children of the city and for the great majority it is the only school they ever attend. In every sense the day elementary school is the school of the people and should be liberally supported. In our budget estimate the largest single item is invariably the request for funds for teachers in the day elementary schools. For 1920 the total budget for the Department of Education was $54,445,268.28. Of this sum $34,123,671.96 or 63.0 per cent, was for teachers and principals in day elementary schools. The total estimate for maintenance and operation for 14 1921 amounts to $91,904,114.93. Of this amount $56,485,685.55, or 61.5 per cent., is for salaries of teachers and principals in elementary day schools. For 1921, the total of the General School Fund estimate is $72,444,886.98, of which $56,485,685.55, or 77.9 per cent., is for day elementary schools. The budget requests for 1921, formulated in July, are subdivided into requests for salaries for 1921 : I — (a) Of persons in service on March 31, 1920. (b) Of persons to be appointed to vacancies existing on March 31, 1920. n — Of teachers to be appointed to new positions , (a) Between March 31 and December 31, 1920. (b) During the budget year 1921. Ill — Of substitutes for service in 1921. 1. Teachers Permanently Employed and Vacancies Existing on March 31, 1920 The budget estimate for the day elementary schools, so far as it includes requests for funds for the salaries of persons in service on March 31, 1920, and for persons to be appointed to fill vacancies existing at that date, rests upon facts which are matters of record. In a separate pamphlet prepared by the Auditor of the Board, schedules are submitted in support of this item, showing calculations by schools on a name by name computation of persons permanently employed on March 31, 1920. The cost of salaries for such persons will amount to $55,324,060.81, or 94.64 per cent, of the gross amount for elementary schools (General School Fund). For vacancies, $1,074,688.90, or 1.83 per cent., is requested. 2. Teachers et al. to he Appointed to New Positions The opening of the schools in the Fall is always accompanied by an influx of new pupils, and to care for this increase in register, teachers in addition to those in service in the preceding March and those to be appointed to fill vacancies existing at that time must be appointed. These new teachers, plus those in service on March 31st and those appointed to fill then existent vacancies, will constitute the payroll as of December 31, 1920, for which salary provision must be made in the budget for 1921. During 1921 also, additional teachers will be needed, as it will be necessary to appoint teachers to take care of the increased register in the Fall of 1921 over the Spring term, so that the budget estimate therefore includes provision also for the salaries of those teachers to be appointed during 1921. The number of teachers to be appointed between September and Decem- ber, 1920, prior to the budget year of 1921, depends upon the estimated increase in register between these months. The number of teachers to be appointed during the budget year 1921 also depends upon the estimated increase in register during 1921. Inasmuch as these items are based on forecasts made from two to eighteen months in advance, such estimate necessarily contains an element of uncertainty. In the past differences of opinion have arisen as to the correctness of these requests of the Board of Education for additional teachers. If the total register of the entire elementary school system remained the same iU - 54 3^ O J^f tol iL (0 Ol dJ d u 3 Z, UJ 35 < lU D D e r £ O 5 ^ 01 if) 5 At 11 11 I I |i 10 »^ !S> ffi !9 M 5 rt n e pj m 3 in !? I b ^ 16 from year to year or from month to month, or if the increase from year to year or from month to month were regular, it would be a simple matter to estimate exactly the register for which teachers must be provided. The total register of the elementary schools, however, is a variable quantity, changing from month to month throughout the school year and increasing by irregular amounts year over year and month over month. Accordingly, to estimate such a variable from two to eighteen months in advance with absolute exactness is not possible. Our estimates are most carefully made and are checked and tested by all available methods. The relative exactness of an estimate based upon the average annual increase for a series of years preceding has been worked out by the Statistical Division. In the budget estimate for 1920, submitted in September, 1919, the estimated increase in register for December, 1919, over December, 1918, was placed at 10,000. The actual increase that occurred was 10,721. A — Estimate of the Need of Teachers During 1921. It is estimated that there will be needed 298 regular teachers for the Fall of 1920 and 400 for 1921. This does not include principals, clerks and teachers of special branches. The estimate as to the need of teachers during 1921 has been made from a study of the increase in the number of classes (teaching positions) and of pupils on register during the last ten years, special attention being given to the present trend in registration and to the several factors tending to increase or reduce the normal annual growth of the elementary schools. Estimated Increase in Register — The register on December 31, 1919, was 762,221. It is estimated that the register for December 31. 1920, will be 771,221, or an increase of 9,000 over the register of December 31, 1919. Detailed statistical data in support of these estimates are given in Document "A," included as an appendix in the departmental estimate. Figure 3 shows the increase for each year since 1910. The estimated increase of 9,000 is lower than the annual increase during seven of the last ten years. The estimated increase in register for December 31, 1921, over December 31, 1920, is placed at 12,000. Estimated Increase in Classes — The estimated increase in the number of classes on December 31, 1920, over the number of classes on December 31, 1919, is placed at 375, or an increase of 298 over the number of classes organized on March 31. 1920. This represents an increase of two per cent, during the calendar year of 1920, which has been exceeded in seven of the last ten years. As far as can be determined now, the increase in the teaching corps for 1921 cannot be safely estimated at less than 400. This represents an increase of 2.1 per cent, in the number of classes of December 31, 1921, over December 31, 1920. Figure 4 shows the annual increase in number of classes on December 31 for the years 1910 to 1921, inclusive. 17 Table I — Distribution of Classes Estimated as Necessary to be Formed by December 31, 1920, and December 31, 1921. Grade No. of Classes March 31, 1920. No. of Classes Estimated Dec. 31, 1920. Increase in Num- ber from March 31. Estimated No. of Classes Dec. 31, 1921. Increase in Number of Classes from Dec. 31, 1920. Intermediate 144 3,557 13,698 878 9 248 28 76 124 26 34 212 3,647 13,795 890 14 266 29 82 125 26 34 68 90 97 12 5 18 1 6 1 300 3,770 13,898 903 26 275 39 97 148 29 35 88 7A-8B 123 1A-6B — Opport., Kind. Exten- sion and Misc 103 Kindergarten 13 Cardiac 12 Ungraded Blind & Sight Conservation . . Crippled Anaemic Tuberculous Deaf 9 10 15 23 3 1 Totals 18,822 19,120 298 19,520 400 The shortage of substitute teachers during the past two years and the failure to secure additional accommodations in the crowded sections of the city have prevented the formation of a sufficient number of new classes to meet the needs of the schools. This is evidenced by the fact that, while the number of classes with registers above 50 was reduced from 1,228 in March, 1912, to 460 in March, 1917, the number of such classes has increased to 534 on March 31, 1920. With an increased supply of teachers, which is now anticipated, and with increased accommodations, it is expected that the increase in number of classes will be not less than the number estimated. It will be seen that the estimated increase in classes for 1920 is at a higher rate, 2 per cent., than the increase in registration, 1.3 per cent. This is due to the fact that many of the classes formed will be with registers smaller than the average class size on December 31, 1919, viz. 40.9, notably in those above grade 6B and the special classes, such as ungraded, anaemic, crippled, etc., which are formed with registers much smaller than the average register of all classes. The formation of these higher grade and special classes with the formation of classes of the regular grades to reduce large registers necessitates an increase in the total number of classes in the. city at a rate somevv^hat in excess of the increase in register. B — Reduction of Oversized Classes. ' For some years earnest efforts have been made to keep the maximum number of pupils in a grade class down to 40. Some progress has been made in this direction. On- March 31, 1920, the average number of pupils to a class was 40. An average, however, is a mythical figure and fails to show the real situation. 18 The following table shows the organization of classes in elementary- schools on March 31, 1920: Table II — Number of Classes, Register and Average Number of Pupils Per Class — Elementary Schools, March 31, 1920 Grade. Number of Classes. Register. Average No. of Pupils Per Class. Per Cent, of Classes to Total. Intermediate 144 3,557 13,249 348 73 878 248 28 76 124 26 34 37 5,011 137,026 553,457 10,886 2,811 33,620 4,021 373 1,625 2,952 685 278 988 34.9 38.5 41.7 33.3 38.5 38.2 16.2 13.3 21.3 23.8 26.3 8.2 26.17 0.77 7A-8B 18.87 1A-6B 70.40 E and Opportunitv 1.84 Kindergarten Extension Kindergarten 0.39 4.66 Ungraded 1.32 Blind and Sight Conservation. . . Crippled 0.15 0.40 Anaemic Tuberculous 0.66 0.14 Deaf 0.18 Miscellaneous 0.21 Total 18,822 753,733 40.0 99.99 Table III — Number of Classes in Elementary Schools, Exclusive of Kinder- . gartens. With Registers Over 50 on March 2i\st Year. Number of Classes. Increase or Decrease over Preceding Year. 1912 1,228 930 714 957 993 460 464 489 534 1913 1914 298 decrease 216 1915 1916 1917 1918 1919 1920 243 increase 36 533 decrease 4 increase 25 45 The request for teachers for 1921 contains provision to the extent of .23 positions for reducing such oversized classes. This is a very slight num- ;ber, in view of the obvious need in this direction. The teachers and pupils in large sixed classes work under severe handicaps, which should be removed if good results are to be accomplished. Our present organization is an 19 economical one. Table IV shows for March 31, 1920, the number of classes in elementary schools (including truant) according to size. Table IV — Number of Classes According to Si^e as of March 31 „ 1920 Rapid Per Cent. Classes Regular Advance Total. of Classes Kind. for De- Size. Classes. and Opportun. to Total. fectives &Miscel. Less than 10 37 10 and less than 15 102 15 and less than 20 192 20 and less than 25 120 Total less than 25 ... . 116 15 131 0.8 43 451 25 and less than 30 237 12 249 1.4 77 83 30 and less than 35 1,773 88 1,861 10.7 123 18 35 and less than 40 4,412 139 4,551 26.2 175 19 40 and less than 45 5,689 70 5,759 33.1 305 2 45 and less than 50 3,814 19 3,833 22.0 116 50 463 5 468 2.7 28 51 and less than 55 430 430 2.5 5 55 and over 104 104 0.6 6 Total 17,038 348 17,386 100.0 878 573 The table shows that 380 classes, or 2.2 per cent., have registers less than 30; that 6,412 classes, or 36.9 per cent., are between 30 and 40 in register; 9,592 classes, or 55.1 per cent., are between 40 and 50, and that 1,002 classes, or 5.8 per cent., have 50 or more children. Educational practice is agreed that the optimum number of pupils to a class should not exceed 40. Of classes of 40 and above in size New York has 10,594, or 60.9 per cent, of the total number. This condition cannot but affect the character of the work done. It is in large part due to the lack of class room accommodations which has existed for a number of years. 3. Classes for Defective and Physically Handicapped Children. Perhaps the most charactertistic advance in school administration during recent years has been the rejection of the assumption that all children are practically alike in physical and mental equipment, and also that children with marked physical defects of sight, hearing or limb have no place in the public schools. Under the older belief children of widely different abilities were grouped together in unit classes, with the result that physical and mental defectives were very frequently laggards, because of their inability to take advantage of the instruction offered. The child with defective vision, the stammerer, the cardiac and the mental defective were placed in severe scholastic competition with practically normal children. The net result of their failure was not only extreme personal discouragement and loss of self-esteem and self-confidence, but also considerable expense to the 33« 262 220 107 5G CK 14 LfrS& 2S 30 THAN TO TO ZS 30 35 4.0 4-5 SO TO TO AND 45 50 ovta PIQUI5,E: 5 /4U/A6EB. OF CLA.55t5 ACCOJ^DI/SQ TO SIZE: OUT OP tVeaV lOOO B.E6ULAG CLAS>SE5 lAI ELE-/AtA4TAaY SCHOOLS 21 city because of the fact that such children were repeaters in the grade and frequently a hindrance to the efforts of the teacher with the class. New York has been a pioneer in providing facilities for such children. Table V shows the number of such classes organized and the register during the years 1914-1920. Table V — Classes for Defective and Handicapped Children Blind St Sight Conser- vation. Anaemic. Cardiac. Crippled. Deaf. Tuber- cular. Ungraded- CI. Reg. CI. Reg. ' CI. Reg. CI. Reg. CI. Reg. CI. Reg. CI. Reg. 1914 1915 1916 15 16 17 20 22 24 28 157 161 158 203 220 285 373 40 53 82 90 109 115 124 947 1,331 1,941 2,190 2,634 2,794 2,952 "z 3 9 70 73 209 39 45 49 55 63 77 76 725 817 960 1,062 1,197 1,464 1,625 30 31 31 5i 34 34 278 290 288 286 302 292 278 21 26 25 26 22 27 26 462 574 549 572 516 679 685 182 203 212 217 233 241 248 2,829 3,417 3,840 1917 1918 3,834 3,880 1919 4,129 1920 4,021 We now make provision for the blind child, who formerly groped around his home, making no progress and developing all kinds of unfortunate mannerisms ; for the deaf child, who either remained at home or struggled ineffectively in the class room ; for the child afflicted with a cardiac lesion, who formerly was compelled to comply with all the exacting demands made with reference to dismissals, gymnastics, book work, despite his disability ; for the crippled, who either remained at home after infantile paralysis had afflicted him or who struggled manfully in a school room equipped with furniture which was totally unsuited to accommodate him ; for the speech defective, whose stuttering and stammering made him an object of pity or ridicule, both in his school and in his social environment ; and for the mental defective, whose inability to respond as a member of a normal class begot nagging and eventually drove the child to truancy. The expense attached to, the organization of special classes for these children is several fold. First, teachers of special ability or special training are required, for which higher rates of compensation are allowed. Secondly, the classes for such children are smaller in size than the regular classes, as the large size groups cannot be advantageously handled. Thirdly, in several types of special class, special equipment and supplies are required. Lastly, transportation, which must be provided for many cases, entails considerable expense. The following table gives the special school fund items included in the estimate for these classes. It is unnecessary to defend any provision that is made for such children. From the social standpoint it is highly desirable that every effort be made to provide for and educate such children, to attempt to make them sound and healthy, to rehabilitate them, so that they may become useful, self- supporting or partially self-supporting members of society. From the standpoint of the individual everything that can be done to better the lot of these unfortunate charges, even to make them happier, is entirely justi- fiable. From the school standpoint the segregation of these handicapped children from the regular classes is an advantage, as it permits of more 22 normal progress and advancement with the normal group. Backward indeed would be any educational program that did not include within its scope ample provision for these handicapped children. The items for teachers are included under those for the elementary schools. Schedule 4, General School Fund, page 19, and Schedule 5, Gen- eral School Fund, page 20. Table VI — Special School Fund Iteins for Classes for Defective and Handicapped Children Classes. General Educa- tional Supplies & Equipment. Special Supplies & Equipnent. Classroom Equipment. Transpor- tation. Total. Anaemic or Open Air . Blind and Sight Con- servation Cardiac $9,278 00 8,845 32 3,000 00 3,977 50 850 75 1,520 00 13,762 58 $8,122 58 246 46 3,164 64 2,199 35 65 61 2,107 54 26,496 00 6,529 35 $20,224 50 9,944 00 5,850 00 12,495 00 545 00 2,053 50 5,321 25 $37,625 08 $5,504 33 24,540 11 12,014 64 Crippled 155,098 92 4,910 00 173,770 77 Deaf 6,371 36 5,681 04 Ungraded 45,579 83 General 6,529 35 Total $41,234 15 $48,931 53 $56,433 25 $165,513 25 $312,112 18 See Budget Estimate Schedules No. 15,p.36 No. 20, p.39 No. 21,p.40 No. 22, p.40 No. 40, p.47 No. 42, p.48 No. 59, p. 53 Anaemic or Open Air Classes This type of class is conducted for the anaemic, undernourished and physically subnormal child, for whom the first consideration should be his physical condition. The classroom in such classes is suitably located and the windows are so arranged as to permit the greatest possible influx of fresh air. Some of the classes hold sessions in the courtyards or on the roofs of school buildings. Particular attention is paid to the physical care of the child through inspection by doctors and nurses, school lunches, and rest or sleeping periods. Steamer chairs and cots with sleeping bags are provided. The treatment and care given in these classes makes it possible for the child to continue in school without loss of instruction where otherwise in most cases the child would be compelled to leave school. At present there are 124 such classes with a register of 2,952. The budget request calls for provision for twenty-four additional classes, one to be organized in the fall of 1920 and 23 during 1921. Classes for Tuberculous Children These outdoor classes are conducted in sanatoriums, hospitals, and on abandoned ferryboats, etc. They are intended for children who have tuberculosis or who have tendencies toward the disease. Sessions are held 2Z outdoors. The care is similar to that in open air classes. At present there are 26 such classes and provision is requested to organize three additional classes during 1921. These classes have been extremely successful and have been able to return many children to regular classes in sound physical condition. Blind and Sight Conservation During the past school year there were conducted 28 of these classes. Provision is requested for 11 additional classes, one for the fall of 1920 and ten to be organized during 1921. The classes are conducted for chil- dren who are totally blind and also for those whose sight is in very poor condition or who are suffering from some eye disease. Besides the academic work, instruction is given in suitable industrial and commercial work. The care of these children necessitates the expendi- ture of money for car fares for the pupils themselves and for pupil guides, who accompany the children to school. Cardiac Classes Classes for children suffering from cardiac diseases have been conducted for four years. It is planned to increase the number now from 9 to 26. Of the seventeen new classes, five were authorized last year for the fall of 1920 and provision must be made for such classes for 1921. The request accordingly involves a provision for 12 additional classes for 1921. The requests for the organization of classes for these children are many and urgent. A survey conducted in the third, seventh and seven- teenth school districts in 1919 disclosed the fact that there were 476 cardiacs in 13 schools in the seventh district and 315 in 14 schools in the seventeenth district. The pupils work under careful supervision by doctors and nurses with a modified school programme and in classrooms located in the lower floors of the school buildings so as to cause a minimum of stair climbing. The pupils in these classes represent children who have extreme organic affec- tions. Classes for Crippled Children The budget estimate includes an item for 21 additional classes for crippled children above the 76 classes conducted at present (March 31, 1920), in schools and hospitals. Of the 21 additional classes, six for which budgetary provision was made for 1920 are to be organized this fall and fifteen new classes are requested for 1921. The new classes are planned for districts where present registers exceed seating capacity and to provide special accommodations fcg^ the care of poliomyelitis cases resulting from the recent epidemic who will arrive at school age during 1921.- A file of all such cases in the five boroughs is kept at the office of the Director of Physical Training. Our present organization of these classes is inadequate to take care of all the crippled children for whom provision should be made. The organi- zation of additional classes is retarded by the lack of schoolroom accommo- dations. More classes are needed but particularly in the congested neigh- borhoods where the school accommodations are inadequate to provide for the normal children. Equipment is requested for the new classes both in hospitals and in 24 schools and also for replacements in present classes. Special types of adjustable furniture are needed, which makes it posible to seat these chil- dren, many of whom wear braces, plaster casts, etc., with the minimum of discomfort. For the more severely handicapped of these children, transportation by stage must be provided. This item is probably the largest single item of expense incurred in this activity. For 1921 $155,098 is requested for trans- portation. Home TcacJiers for Helpless Cripples The terrible scourge of poliomyelitis left in its wake among our children hundreds of cripples, many of whom were so badly afflicted as to be help- lessly bedridden or confined to their homes. For the instruction of these unfortunates at their homes, the Board of Education in 1919 authorized the employment of twenty substitute teachers. These teachers visit the children on three or four days a week and give instruction suited to the progress of the child. Their work has been most successful and has been received most enthusiastically by children and parents. For 1921 the sum of $48,000 is requested, which will allow a slight extension of the service. Ungraded Classes The ungraded classes are conducted for those children who have been adjudged mental defectives. Such children under the conditions obtaining in regular classes are capable of very little academic instruction. They not only become hopelessly retarded but also cause general retardation, inasmuch as they are handicaps to the efforts of the teacher with the normal children. It is necessary, therefore, for the sake of the mental defectives themselves and also for the sake of the rest of the class, to segregate them into special classes. The work in the ungraded classes is confined to such subjects and activities as are suitable for the pupils. On March 31, 1920, there were 248 ungraded classes with a register of 4,021. Budgetary provision for twenty-seven additional classes for 1921 is requested. Of the twenty-seven additional classes, eighteen are to be formed this fall, provision for them having been included in the budget last year and nine new classes are planned for 1921. Teachers of Speech Improvement The budget estimate includes an item calling for financial provision for 1921 for nine additional teachers of Speech Improvement. At the present time there are 27 such special teachers. Each of these teachers is assigned to three schools and gives instruction and curative treatment to special groups of pupils who have speech defects, such as stammering, stuttering, lisping, lolling, etc. The aim of the work- is preventive as well as remedial and with this in view the speech improve- ment teacher has conferences with regular class teachers, gives model lessons and assistance, visits the classroom and examines pupils with reference to their speech. From reports received from the principals of schools, the following figures were compiled showing the number of pupils who need special attention. 25 Table VII — Number of Pupils With Speech Defects Elementary Schools. Register. Number with Speech Defects. Number Receiving Special Instruction. Manhattan The Bronx Brooklyn Queens Richmond 269,679 108,823 291,729 66,748 16,754 17,563 4,837 11,806 2,581 828 3,029 174 1,374 786 Total 753,733 37,615 5,363 High Schools 71,444 3,728 363 Grand Total 825,177 41,343 5,726 The work of the present corps has been very efficient and successful. Many children are cured, the defects of others have been alleviated, their regular class work has shown great improvement, and in numerous cases the conduct of the pupil has become markedly better. The problem in our city of training pupils to use their voices properly is complicated by the presence of so many yoimgsters born in foreign countries or of foreign parentage. The activity merits the fullest possible financial support. 4. Prevocational Courses in Elementary Schools Budget Items 1921 Estimate. 1920 Apportion- ment. Increase. Estimate Schedule Number. I — General School Fund — Teachers' Salaries II — Special School Fund — 1. Supplies & Equipment 2. Special Repairs, Replace- ments, Alterations and Bet- terments . .... Included un $93,126 80 48,851 00 der Elementa $28,595 57 ry School Ite $64,531 23 48,851 00 ms No. 17, p. 37 No. 55, p. 52 Total. .• $141,977 80 $28,595 57 $113,382 23 The Board of Education has conducted prevocational courses in a number of elementary schools since 1914. A prevocational school is a school which offers to pupils in the seventh and eighth years an opportunity to engage in industrial work, and thereby to secure a type of experience in the elements of fundamental trades and an insight into conditions of industry under which such work must be carried 26 on. The aim of these courses is not to prepare pupils directly for the trades, but to provide such experience as will help the pupil to discover whether or not his inclinations and abilities fit him to do industral work. The prevocational schools were organized because it was recognized that an elementary education covering a span of eight years and devoted almost exclusively to bookish instruction is not the type best fitted to the needs of all elementary school pupils, who differ greatly, both in native interests and abilities, and a vast number of whom, despite their early ambitions to enter the professions, finally pass into industrial life. In the prevocational schools differentiated courses are oft'ered for selec- tion by the adolescent pupils of the seventh and eighth grades. Besides the regular academic work instruction is offered in these schools in the fol- lowing- : Boys Printing Plumbing Sheet Metal Machine Shop Trade Drawing Joinery Sign Painting and Lettering Garment Design Electric Wiring Girls Bookbinding Dressmaking Novelty Work Power Machine Cooking Art Weaving Homemaking Millinery Trade Drawing- Note — All subjects are not carried on in each school. There are at present nine schools which offer prevocational work. It is planned to extend the activity to seven additional schools. The exten- sion requires the establishment of shops, involving the purchase of equip- ment and supplies. For this the budget item calls for $20,589.62 for exist- ing shops and $71,737.18 for proposed new shops in the seven additional schools. (For details, see Schedule No. 17, page 37.) The installation of shop equipment necessitates classroom changes and alterations and involves the expenditure of $48,851, for which an item is included. (Schedule 55, page 52.) Intermediate Schools Budget Items 1921 Estimate. 1920 Apportion- ment. Increase. Estimate Schedule Number. I — General School Fund — Teachers' Salaries II — Special School Fund — 1. Educational Supplies & Equipment 2. Classroom Equipment — Furniture and Special Re- pairs and replacements Included und $321,395 20 159,437 30 er Elementar $163,066 00 35,955 00 y Schools $158,329 20 123,482 30 No. 18, p. 38 No. 39, p. 46 Total $480,832 50 $199,021 00 $281,811 50 27 During the last two years the Board of Education has organized a number of intermediate schools. Such schools are for the present still classified as elementary organizations, inasmuch as they are still dealing, for the large part, with pupils of elementary grade. It is planned, however, to set up this type of school as a separate organization, and some of the items of maintenance and operation appear in the budget estimate as sepa- rate items. What is an Intermediate School f An Intermediate School (or Junior High School) is a school that in- cludes in one organization the seventh, eighth and ninth years of school life, i. e., the last two years of the elementary school and the first year of the high school. In. organizing an intermediate school the seventh and eighth year pupils of a number of schools in the same neighborhood are placed in one central school. These pupils, instead of leaving the school at the completion of the 8B grade, to attend a high school that may be situated at a considerable distance from their homes, are given an opportunity of taking the first year high school work in the same school, in the intermediate or "neighborhood high school" as it is called. Important Educational Advantages of the Intermediate School Plan Among the most important educational advantages of this new plan of organization are the following: 1. Opportunities are given to pupils to obtain the first year of high school instruction in an intermediate school — almost at the doors of their homes; pupils are not subjected to the difficulties, expense and loss of time necessitated by traveling considerable distances in crowded cars ; they may have their hot lunch at home. Consequently the number of pupils remaining in school for the ninth year is being greatly increased by this plan — a most desirable result, when it is realized that investigations indicated that the pupils' learning ability is highest at fourteen years of age — the time at which so many leave school. 2. A broader and richer course of study is made possible by giving pupils an opportunity of choosing either a general course, a commercial course, or an industrial course, in accordance with their abilities or their future work in life, and by teaching some secondary school subjects earlier in the course. Commercial arithmetic, bookkeeping, typewriting, stenography, industries of New York, commercial geography, various forms of vocational work, etc., which are not taught in the regular 8B schools, are taught in intermediate schools. 3. A more efificient and economical use can be made of the school building and classrooms on account of the large number of pupils in the upper grades. By making the classes larger many vacant sittings can be saved and the facilities offered by workshops, cooking rooms, gymnasiums, etc., can be used to better advantages than in regular 8B schools. 28 4. Exceptionally bright pupils can be grouped into rapid advancement classes, so that the work of the seventh and eighth and ninth years may be done in two years — thereby saving not only a considerable sum of money but one year in a pupil's school life. At the present time approximately 8,000 pupils are enrolled in the rapid advancement classes in intermediate schools. 5. The intermediate type of organization permits of a type of school management, the adoption of a type of disciplinary control and the introduction of such methods of teaching as are more adapted to the instruction and training of adolescent pupils. Present and Proposed Organisation At present there are 32 intermediate schools. It is planned to organize 9 more during 1921. At the present time, with the exception of two schools, the intermediate schools still retain as part of their organization classes in elementary grades from lA to 6B, the same principal supervising both groups of classes. Budget Requests (a) Teachers — The request for the additional teachers required by the organization of additional schools and by the organization of additional ninth year classes in intermediate schools already established is included in the item for enlargement of elementary schools. (See Schedules 4 and 5, on pages 19 and 20.) It is estimated that of the 298 new positions requested 68 will be required for the fall term of 1920 for intermediate grades, and of the 400 new positions requested for 1921, 88 will be needed for such classes. (b) Special School Fund Requests — For such items of maintenance and operation, other than teachers' salaries, as are included under the Special School Fund, $480,832.50 is requested, as follows : 1. Supplies and Equipinent. (See Schedule 18, page 38.) For text books and supplies, $162,262.20 is requested for pupils in Grades 7 A to 8B, inclusive. This item for these grades is not included under the regular item for general educational supplies and equipment. A higher per capita cost for the 8A and 8B was taken as a base of estimating requirements for pupils in schools to be organized. In the 8A grade the differentiated courses of study are begun in intermediate schools and the initial cost of text books and supplies is greater than the annual replacement cost. For pupils in the 9A and 9B grades, $128,294 is requested for text books and supplies for schools already in operation, and $30,389 for schools to be organized. In considering the above requests, it is to be borne in mind that the amounts included represent in many items the costs of initial installation involved in the organization of a new activity. In such cases the cost is higher than that for replacement or maintenance after organization. The request includes an item for books for class librar'es. Such class libraries are required in order to obtain the approval by the Regents of the courses in intermediate schools, as equivalent to high school courses. The same holds true of the item for apparatus and equipment for teaching science. 29 2. Classroom Equipment, Alterations, Furniture, etc. For these purposes, $194,507.50 was originally recommended, which amount was reduced at the Budget conferences of the Board of Education to $159,437.30. The details are given in the Budget Estimate Schedule No. 39, page 46. The following items are involved : (a) The equipment of Typewriting Rooms with tables and stools for the commercial courses, involving $4,560. (b) The equipment of Library Rooms, in order that provision for library work may be made to comply with the requirements of the Regents for approval of courses. This item involves $24,000. (c) The installation of Science Rooms, required for the same purpose, and involving $27,365. (d) Provision for supplying furniture in regular classrooms, to accommodate the larger and older pupils in intermediate schools, and for changing furniture in schools selected for reorganization, involving $57,750. (e) Special repairs and replacements involving $80,832.50, made necessary by the introduction of the new type of organization. For the above items a lump sum of $159,437.30 was included. The items enumerated are special items in the sense that they are made necessary by the reorganization involved in changing a school from the regular type of school to that of an intermediate school. For these schools such items will not recur in succeeding years. 30 V— DAY HIGH SCHOOLS' Budget Items 1921 Estimate 1920 Apportion- ment Increase Estimate Schedule Number I — General School Fund — Salaries — 1. Present Organization — (a) Persons permanently employed March 31, 1920 (b) Vacancies existing March 31, 1920 2. Enlargement on account of increased register — (a) During fall of 1920. (b) During 1921. 3. Substitute Service dur ing 1921 4. Special Items — Teachers of Speech Im provement (3) Teachers of Home Nurs Gross Total Deduct Estimated Shrink- ages, Accruals, etc Net Total . II — Special School Fund — General Educational Sup- plies and Equipment. . . . Vocational and Technical Supplies and Equipment for High Schools Equipment for Home Nurs- ing Courses (New) Total ),252,394 29 398,840 00 135,210 00 240,778 10 185,464 00 6,975 00 20,625 00 0,240,186 39 322,427 58 ),917,758 81 $377,968 20 267,000 00 1,000 00 3,819,154 57 *$342,206 14 5,098,604 24 $645,968 20 $35,762 06 1.000 00 No. 2-p. 18 No. 3-p. 18 No. 4-p. 20 No. 5-p. 21 No. 6-p. 22 No. 5-p. 21 No. 5-p. 21 No. 1-p. 10 No. 15-p. 36 No. 16-p. 37 No. 29-p. 42 *Included in lump sum appropriation for General Education Supplies and Equipment. The amount indicated above is the amount requested. The second major budget item is the request for funds for the Day- High Schools. For Day High Schools $6,819,154.57 was apportioned in the 1920 funds which was 15.37 per cent, of the total General School Fund for 1920. For 1921 $9,970,878.81 is requested for salaries of teachers and prin- cipals, et al. in high schools including co-operative courses. This forms 13.76 per cent, of the entire General School Fund request for 1921. As in the case of the elementary schools the budget estimate for 1921 is divided into the following items : 1. The amount required for teachers permanently employed on March 31, 1920. 31 2. The amount required for persons to fill vacancies' existing on March 31, 1920. 3. The amount required for new positions required to be estab- lished in the fall of 1920 and during 1921 to take care of increased registration. 4. The amount required for substitute service during 1921 and for teachers in training. 5. Miscellaneous special items. 1. Teachers Permanently Employed and Vacancies Existing on March 31, 1920 The item for teachers permanently employed is supported by detailed schedules published separately which were prepared by the Auditor and based upon a name by name computation of teachers in each school. This item for 1921 calls for $9,252,394.29 or 90.3 per cent of the gross total for High Schools. The cost of salaries for persons already appointed or to be appointed to fill vacancies existing on March 31, 1920, calls for $398,840 or 3.89 per cent, of the gross total request for teachers' salaries. 2. Substitute Service and Cost of Teachers in Training This item calls for $185,464, which is 1.8 per cent, of the gross total of the General School Fund request for high schools. 3. Enlargement of System The various items for enlargement of the service in high schools total $403,488.10, which is 3.9 per cent of the high school total. (a) Neti' Positions Needed to Take Care of Increased Register The item for the enlargement of the system provides for the new posi- tions necessary to care for the increased registration in the fall of 1920 and during 1921. The following table shows the number of positions for which funds are requested. Detailed data in support of this request appear in Document B included as an appendix to the Budget Estimate. Table VIII — Number of New Positions Needed in High Schools Position. Fall 1920. Spring 1921. Fall 1921. Total. For New Cooperative High School Fall, 1920. Principal First Assistant 1 8 32 1 1 15 80 2 1 3 2 48 1 25 160 3 2 3 1 3 Assistant Teacher Laboratory Assistant Library Assistant Clerical Assistant 8 i Total . . . 43 101 50 194 13* *PIus 14 coordinators who are now assigned to various high schools. 32 The estimate of teachers needed is made up from the individual esti- mates of the principals of the several high schools as amended by the Associate Superintendent in charge of high schools and as modified by the Superintendent of Schools. The estimates submitted by the principals were materially reduced (see Document B). The estimates for 40 teaching positions (assistants and first assistants) for the fall of 1920 has been made on the application of the "pupil period load," allowance being made for the probable increase in register in each school. The "pupil period load" in a subject is obtained by multiplying the number of pupils taught by the number of periods per week the subject is offered. For example, assume in a given school in the subject of mathematics that 1,200 pupils are receiving instruction in the subject for five periods per week. The aggregate pupil period load in this subject would be 6,000. Assume eight teachers assigned to this subject. The pupil period load per teacher would then be 6,000 -f- 8 or 750 pupil periods. To obtain the pupil period load per teacher for a school, the aggregate number of pupil periods is divided by the number of teachers in the school. The following standards of organization were adopted several years ago after careful study and have since been applied. Standards of Organisation Position. Requirements. For each assistant — (a) In schools of less than 2,000 pupils. . . (b) In schools of 2,000 or more pupils, . . . For physical training teachers 660 pupil periods p;r teacher 750 pupil periods per teacher 1,200 pupil periods per teacher For music teachers For clerical assistants 1 teacher for every 1,350 pupils 1 teacher for every 700 pup'ls The basis for the allowance of first assistants is as follows : Five first assistants for the first thousand pupils, one additional first assistant for each five hundred pupils up to four thousand and thereafter one first assistant for every 700 pupils. The estimate of 145 teaching positions for 1921, 95 for the spriu'- term and 50 for the fall term, is based upon a probable increase in registni lion of 4,000 pupils. Figure 6 shows the registration as of March '" and October 31 for the period of 1909 to 1920. During the past thr years the registration in high schools has remained practically the sai^ although the annual increase in other years has been as high as 24 pe ■ cent. It is estimated that there will be an increase of 4.000 or 5.7 per cer^ during 1921. This is at a rate lower than the average rate per cent. - increase during the normal years preceding 1916. (b) Co-operative High School For some years past co-operative courses have been conducted in the high schools. In these courses the students are divided into two groups. While one of these groups is in the classroom receiving instruction the 33 other group is engaged in practical work in industrial, commercial and manufacturing establishments, related to the courses such students are pur- suing. At the end of two weeks the groups alternate. Teachers are assigned as "co-ordinators" to supervise the work of the students in the outside establishments, to see that adequate opportunity- is afforded the students for proper training, and that the pupils are not exploited and also to obtain information and data upon which to base any adjustments of classroom instruction to practical work that may be found desirable. The students as a result receive valuable practical training in industrial establishments that vitalizes the classroom instruction and gives it concrete content. The co-operative plan incidentally serves to increase the accommoda- tions in high schools and to reduce the cost of instruction for supplies and equipment. In order to concentrate the activity for purposes of better administration the Board of Superintendents with the approval of the Board of Education has organized for the fall of 1920 the co-operative high school, bringing together into one organization the students enrolled in co- operative courses in the different high schools. This change in organiza- tion will not only effect some economy but will also assure better adminis- tration, closer supervision of pupils and greater educational results. The new organization will require one principal, one clerical assistant and twenty-five teachers. Of the twenty-five teachers included, fourteen already employed as co-ordinators are to be assigned from the different high schools to the Co-operative High School. This necessitates the creation of thirteen new positions, as follows : one principal, one clerical assistant, three first assistants and eight assistant teachers, involving a cost of $35,450, which item is included in the item for enlargement of system during the fall of 1920. (c) Special Items The budget request includes two new items, (a) for three teachers of speech improvement and (b) for nine teachers of home nursing. The services of speech improvement teachers are greatly needed in the high school to extend to the high schools the advantages accruing from this type of instruction now carried on in the elementary schools. There are many students in our high schools who are afflicted with speech defects, which in a great many cases are remediable under proper treatment. The possession of a speech defect is not only a source of acute embarrassment to the pupil but is also a cause for poor work and lack of progress in all school work. The work to be carried on will be not only curative but preventive. The need for these teachers is pressing. The home nursing teachers are needed to carry on the work of con- ducting the courses in home nursing in girls' classes, that have been given for several years by the Red Cross. This type of instruction, begun as an experiment by the Red Cross several years ago under the emergent epidemic conditions then existing with the accompanying shortage of nurses, has proven most successful and worth while. The courses are not intended to turn out trained nurses but aim to give each girl that insight into the home care of the sick that should form part of her training. Such training is as essential as skill in domestic science or domestic arts and other home- making subjects and possesses a most practical value. The nine teachers 34 requested will continue already organized courses. For supplies and equip- ment for this work $1,000 is requested. 4. Vocational and Technical Supplies and Equipment. (Schedule No. 16, page 37.) For vocational and technical courses conducted in our high schools $267,000 is requested. Of this amount $29,000 is for existing activities and $238,000 represents the sum needed for equipment in the Manual Training High School for the modified technical courses which have been approved for that school. This item -was included although contingent upon the acquisition of floor space and accommodations to permit the extension of the activity in that school. 35 VI— TRAINING SCHOOLS FOR TEACHERS Budget Items 1921 Amount Estimate Schedule No. I General School Fund — 1. For salaries of persons permanently employed on March 31, 1920. . . $368,997 28 No. 2-page 18 2. For salaries of persons already ap- pointed or to be appointed to ' fill vacancies existing on March 31, 1920 9,100 00 No. 3-page 19 3. For substitute service for absent teachers 1,552 00 No. 6-page 22 $379,649 28 4. For salary of one teacher of Speech Improvement (new) 2,291 66 No. 5-page 21 $381,940 94 Less estimated shrinkages and accruals 12,608 68 $369,332 26 In order to provide a sufficient supply of properly trained teachers in our schools the Board of Education maintains three training schools for teachers. The request for salaries for the instructors in such institutions amounts to 0.51 per cent, of the total General School Fund. Owing to the attractive compensation paid during the past few years in all types of industrial and commercial work, the number of applicants for admission to the training schools has fallen off materially. For the fall term of 1920 a considerable increase in the register is already reported based on tentative figures as to applications for admission obtained before the close of school. It is expected that the registration will increase considerably during 1921 owing to the higher salary schedules recently going into effect. The request submitted does not ask for any additional teachers with the excep- tion of one teacher of speech improvement. It is proposed to appoint such teacher to the training schools not only to improve the speech of those of the students who may be suffering from speech defects which, if uncorrected, would prevent their success as applicants for teacher's license, but also to institute instruction among the prospective teachers as to methods of cor- recting or preventing such speech defects among school children. Z6 VII— VOCATIONAL SCHOOLS Budget Items ' 1921 Estimate. 1920 Apportion- ment. Increase. Estimate Schedule Number. I — General School Fund — Salaries — 1. For persons permanently employed March 31, 1920. . 2. For persons to fill vacancies existing on March 31, 1920 . . 3. For new positions — (a) For Fall of 1920 (b) For 1921 $414,988 33 99,339 20 32,669 60 29,604 54 No. 2-p. 18 No. 3-p. 19 No. 4-p. 20 No. 5-p. 21 Gross Total $576,601 67 14,180 01 Deduct shrinkages and ac- Net Total $562,421 66 $367,345 07 $195,076 59 II — Special School Fund — ■ 1. Supplies and equipment . . . 2. Repairs, replacements, al- $150,000 00 58,959 00 $69,416 25 $80,583 75 58,959 00 No. 16-p. 37 No. 54-p. 52 Total $208,959 00 $69,416 25 $139,542 75 The importance of vocational education, particularly at the present time, makes unnecessary any extended statement in support of our present activity. While provisions for vocational education in this as in other cities are comparatively recent, such work is now receiving much greater emphasis. The great World War in which not merely armies but in which whole nations were engaged, demonstrated beyond all cavil the importance of an efficient industrial democracy proudly conscious of its responsibilities. It is not too much to say that this war in defense of democratic ideals was won not merely on the battle line but also behind the line in the cultivated field, the deep-driven mine, the smooth moving machinery of the mill and the factory, and the vibrant lines of communication and transportation. Our city's need, our nation's need for the type of worker whose mentality is supplemented by manual skill and whose knowledge has a degree of reality that book study alone will never give, has awakened laymen as well as educators to a keener interest in vocational schooling than has found ex- pression heretofore. The conscious emphasis placed now upon vocational education is • ascribed by Prof. Dewey to the following causes among others : (a) " In the first place there is an increased esteem in demo- cratic communities of whatever has to do with manual labor, com- mercial occupations, and the rendering of tangible service to society. (b) " In the second place those vocations which are specifically industrial have gained tremendously in importance in the last century and a half. Manufacturing and commerce are no longer domestic and local but are world-wide. They engage the best energies of an increasingly large number of persons. The problem of social adjust- ment is openly industrial, having to do with the relation of Capital and Labor. ... (c) "In the third place, industry has ceased to be essentially an empirical rule of thumb procedure handed down by custom. Its technique is now technological, that is to say, based upon machinery resulting from discoveries in mathematics, physics, chemistry and bacteriology. As a consequence industrial occupations have uni- formly greater intellectual content and infinitely larger cultural possi- bilities than they used to possess." It was the necessity for materially increasing the opportunities for vocational education offered in our public schools that led the Board of Superintendents to recommend and the Board of Education to approve the following programme of expansion in this activity : "Whereas, During the past two years no provision has been made for the extension of the industrial training of the pupils within our system, although the needs of the said pupils, and also the urgent needs of the nation, have demanded the adoption of a comprehensive programme for the extension of vocational training in fundamental industries, the following resolution is offered for adoption : "Resolved, That the Board of Superintendents recommends to the Board of Education that financial provision be made in the budget for the year 1918 for the purchase of sites, the erection, equipment and alteration of buildings to provide the following vocational schools, or the improvement of existing schools in the boroughs indicated : (a) One vocational school for boys in the Borough of The Bronx. (b) One vocational school for girls in Brooklyn. (c) One vocational school for boys in Greenpoint. (d) The betterment of the Murray Hill Vocational School through the supply of (additional equipment and the erection of) a new building on the present site. (e) The betterment and enlargement of the Brooklyn Voca- tional School for Boys through the supply of additional equipment and the erection of a suitable building. The above programme was approved by the Board of Education by formal resolution. Most of the programme remains to be carried out. Ad- ditional accommodations have been obtained for the Brooklyn school but that is all. At the present time there are five vocational and trade schools as follows : 1. Vocational School for Boys. 2. Murray Hill Vocational School. 3. Brooklyn Vocational School. 4. Textile School. 5. Manhattan Trade School for Girls. 38 The following table shows the trade courses taught, dition to certain academic subjects which are prescribed. These are in ad- Vocational School Brooklyn Manhattan , for Boys. Murray Hill. Vocational. Textile. Trade, Girls. Architec. Drawing Architec. Drawing Elect. Wiring General Textiles Dressmaking Carpentry Auto. Repair Machine Shop Weaving and Millinery Comm'l Design Elect. Wiring Printing Design Lampshade Elect. Wiring Mechan. Drawing Mechan. Drawing Mill Wrighting Making Machine Shop Machine Shop Sheet Metal Marketing of Artificial Flowers Mechan. Drawing Practice Woodwork Textiles ISTovelty Work Modeling Plumbing Garment Design Applied Textile Garment Operat- Pattern Making Woodwork Design ing Plumbing Printing Knitting Straw Hat Printing Sign Painting Operating Sheet Metal Embroidery Sign Painting Operating The pupils who are admitted to these schools are elementary school graduates or pupils who are fourteen and who successfully pass an examina- tion in common branches to the satisfaction of the principal. The register of the various schools is shown (for March 31 and Octo- ber 31) in the following table: Table IX — Register in Vocational Schools on March 31 March 31 Vocational School For Boys Man. Trade School For Girls Murray Hill Vocational School Brooklyn Vocational School , Reg. Inc. % Inc. Reg. Inc. % Inc. Reg. Inc. % Inc. Reg. Inc. % Inc. 1910 216 382 529 547 710 882 842 675 674 649 721 166 147 18 163 172 *40 *167 *1 *25 72 76 '.9 38.5 3.4 29.8 24.2 *4.5 *19.8 *0.1 *3.7 11.1 ■351 420 508 537 703 783 763 590 715 838 ' 69 88 29 166 80 *20 *173 125 123 19.7 20.9 5.7 30.9 11.4 *2.5 *22.7 21.2 17.2 .... 'iii 268 270 326 406 424 436 '147 2 56 80 18 12 121.5 0.7 20.7 24.5 4.4 2.8 '276 323 431 488 519 1911 1912 1913 1914 1915 1916 1917 47 108 57 31 17.0 1918 33.4 1919 10.9 1920 6.4 *Decrease. Table X — Register in Vocational Schools on October 31 October 31 Vocational School For Boys Man. Trade School For Girls Murray Hill Vocational School Brooklyn Vocational School Reg. Inc. % Inc. Reg. Inc. % Inc. Reg. Inc. % Inc. Reg. Inc. %Inc 1909 116 245 431 478 556 773 862 787 617 525 586 "i29 186 47 78 217 89 *75 *170 *92 61 liiii 75.9 10.9 16.3 39.0 11.5 *8.7 *21.6 *14.9 11.6 '293- 420 431 529 591 687 660 564 580 614 "ill 11 98 62 96 *27 *96 16 34 43.3 2.6 22.7 11.7 16.2 *3.9 *14.5 2.8 5.9 162 209 249 287 385 432 ■ 47 40 38 98 47 28.2 19.0 15.3 34.1 12.3 192 293 305 456 463 1910 1911 1912 1913 1914 1915 1916 101 12 151 7 52 6 1917 4 1 1918 49.5 1919 1 ..S *Decrease. 39 Budget Requests For salaries of teachers et al. in the Vocational Schools the net amount requested is $562,421.66 or 0.79 per cent, of the total General School Fund. Of this gross amount requested for teachers' salaries $514,327.53 is to provide for the present organization, i. e., persons permanently employed or to be appointed to fill existing vacancies. The item for new positions in- volves $62,274.14 or 10.8 per cent, of the gross amount for teachers' salaries in these schools. The new positions requested are as follows : Table XI — New Positions Needed in Vocational Schools For Fall of 1920. For 1921. Voca- tional. Non- Voca- tional. Total. Voca- tional. Non- Voca- tional. Phy. Trg. Total. Vocational School for Boys Murray Hill .... M anhattanTrade Bklyn.Vocational Textile School. . . 2 7 5 1 2 7 6 '2 8 7 3 "2 1 1 1 2 8 10 5 Totals 14 1 15 20 3 2 25 See* Estimate Scheidulesfor details. \ No. 4, page 20. No. 5, page 21. Manhattan Trade The fifteen new positions included for the Manhattan Trade School for Girls are needed for increased register in present activi- ties. The growth of the school was retarded for years by inadequate accommodations. Since the opening of the new school building, the registration has shown an increase and for October, 1921, it will be according to an estimate of the principal, 1,200 pupils. Murray Hill The four positions included for this school are for the extension of present activities. Brooklyn Vocational Ten new positions are provided for in the items included in the budget estimate. Of the ten positions, eight are contingent upon securing additional accommodations on the sixth floor of the Gary Building. The necessary lease has been signed and the rooms will be ready for occupancy on February 1, 1921. The remaining two positions are contingent upon securing quarters in an elementary school building in the vicinity of the Gary Building. 40 Textile School This school was opened in November, 1919, with a register of 83. By March the register had increased to 169, and by October of this year the principal expects the register will be 500. State Aid For the encouragement of vocational education and in recognition of its responsibility for providing educational opportunities to the industrial workers of the community, the State provides financial aid to the extent of one half of the amounts paid for teachers' salaries not exceeding one thousand dollars. The amount to be received from the State for the last school year for all day teachers of vocational or industrial subjects has been estimated at $312,008,85. Supplies and Equipment — Schedule 16, Page 37. For this purpose provision has been requested to the extent of $150,000. Of this sum $100,000 is for existing activities involving an increase of $30,583.75 over the apportionment for 1920 and $50,000 is for supplies and equipment for the new vocational school which it is planned to organize in the Borough of Richmond. This is contingent upon securing suitable building accommodations. It is expected that such accommodations will be obtained inasmuch as the Board of Education has had under consideration the purchase of an available factory and office building. I I 5 lU di o i: u 5c iJ e O I z !5 d ^ i5 lU Ql o KJ D ID iL --O^cOOfONioOiOOO^oOa) •e^*0<0S»0(SJO- o o o tn (vj fO (VJ ^vDtt <^'^W — -r~ 8 ffi 0^ ff^ o> ai o> 01 Q oi 0) o» cft oo o^O(no 0) o^ fli 0) oj 6^0^ 42 VIII TRUANT AND PARENTAL SCHOOLS Budget Items 1921 Estimate. 1920 Apportion- ment. Increase. Estimate Schedule Number. I — General School Fund — Teachers' Salaries — 1. Persons permanently em- ployed $62,822 08 9,252 00 2,080 00 No. 2-p. 18 No. 3-p. 19 No. 6-p. 22 2. Persons to fill vacancies .... 3. Substitutes for vacation periods of regular teachers. . Gross Total $74,154 08 2,146 58 Deduct estimated accruals, shrinkages, etc Net Total $72,007 50 $93,994 01 60,867 00 $46,032 06 $66,315 83 39,962 00 $25,975 44 $27,678 18 20,905 00 II — Special School Fund — 1. Supplies and Equipment. . . 2. Salaries of Employees No. 14-p. 35 No. 2-p. 3 Total $154,861 01 $106,277 83 $48,583 18 One of the groups of exceptional children for which New York makes provision is the truant and incorrigible pupil. For such pupils three schools are maintained, the New York Parental School, the Brooklyn Truant School and the Manhattan Truant School. These pupils, either because of bad habits resulting from defective mentality or defective bodily condition, or from unfortunate social environ- ment or the combined influence of both, are so vicious or unsocial in their behavior that it is necessary to place them under restraint in order to train them in habits of hygienic living and orderly behavior and in order to pro- tect normal children from contamination. Commitment to the truant or parental schools is employed as a last resort. At the present moment because of inadequate accommodations there are a great number of commitments unexecuted and a great number of pupils on parole. A careful consideration of the problem of the exceptional child con- vinces one that there will always be need of a system of parental and pro- bationary schools. Probationary schools should be established throughout the city in defi- nite relation to the needs of the school population. In such schools through compulsory attendance rigidly enforced, longer hours, a varied school cur- riculum including prevocational training and such coercive measures under wise limitation as may be deemed necessary, these exceptional pupils would be trained so that after a reasonable period they could be returned to the regular public school. The initial step in this matter has been taken and for the gradual development of such a system of schools financial pro- vision should be made just as soon as it is possible to relieve existing con- gestion and thus making buildings available for this purpose. 43 For the parental and truant schools the budget items call for no new teaching positions. For persons permanently employed and for those to be appointed to fill existing vacancies and for substitutes for regular teachers absent on vacation, $74,154.08 is required. For supplies and equipment and for food and maintenance of pupils, $93,944.01 is requested for 1921, involving an increase of $27,678.18 over the $66,315.83 allowed for 1920. The increasing cost of all articles which enter into the maintenance and care of resident pupils accounts for the increased cost. 44 IX COMPULSORY CONTINUATION SCHOOLS Budget Items 1921 Estimate 1920 Apportion- ment. Increase. Estimate Schedule Number. I — General School Fund — Salaries of Teachers, et al. — 1. Permanently employed March 31, 1920 $87,581 13 56,450 00 253,155 00 577,250 93 12,000 00 No. 2-p. 18 No. 8-p. 23 No. 8-p. 23 No. 8-p. 23 No. 8-p-. 23 2. Vacancies March 31, 1920.. 3. Enlargement — (a) During fall of 1920 (b) During 1921 4. Supervisors in Special Sub- jects Gross Total $986,437 06 2,992 69 Less Accruals and Shrinkages. . Net Total $983,444 37 $125,431 62 $858,012 75 5. Teacher assigned as Assist- ant Director — position to be regularly established during 1921 $4,250 00 6. Attendance Officers — (a) Employed in 1920 $70,628 00 84,247 00 (b) Additional for 1921. . .. No. 5-p. 22 . $154,875 00 II — Special School Fund — 1. Supplies and Equipment. . . $700,979 15 65,194 80 112,000 00 165,905 00 No. 19-p. 38 2. Classroom Equipment No. 44-p. 49 No. 44-p. 48 No. 68-p. 55 3. Building Alterations 4. Rentals $1,044,078 95 Compulsory Continuation or Part-time Classes I — What is a Continuation or Part-time School or Cla^ssf Under the terms of the New York State Education Law a continuation or part-time school or class is a school or class for boys and girls between the ages of fourteen and eighteen years, who are not high school graduates and who have discontinued attendance upon the regular full time schools. vSuch a school or class provides instruction for not less than four and not more than eight hours per week for at least thirty-six weeks each year, on regular school days, between 8 o'clock a. m. and 5 o'clock p. m., in sub- jects which are designed to increase the civic and vocational intelligence of the pupils. 45 IX The law requires the establishment of continuation schools and classes. Chapter 531 of the Laws of 1919, amending the State Education Law, requires the organization and establishment of continuation classes and schools. Section 601, paragraph a: "Part-time or continuation schools shall be established in cities and school districts having a population of five thousand or more inhabitants. a. The board of education of each city and of each such school district in which there are twenty or more minors above the age of fourteen years and below the age of eighteen years, who are not in regular attendance upon instruction, shall estabHsh and maintain part-time or continuation schools or classes in which such minor shall receive instruction. Such schools or classes may be estab- Hshed in pubhc school buildings, in other buildings especially adapted for their operation, in manufacturing or mercantile establishments and in factories. Such schools or classes, wherever they are estab- Hshed or maintained, shall be under the control and management of the board of education and shall be a part of the public school system of the city or district which maintains them. Courses of study in private or parochial part-time or continuation schools or classes which meet the requirements of the statutes and the regulations pre- scribed thereunder may be approved by the Commissioner of Educa- tion and, when thus approved, attendance thereon shall be accepted for that required under this article." Section 601, paragraph b: "Such part-time or continuation schools or classes shall be main- tained each year during the full period of time which the pubhc schools of a city or district are in session. The sessions of such part- time or continuation schools or classes shall be on the regular school days and for as many hours between the hours of eight o'clock fore- noon and five o'clock afternoon as shall be necessary to provide the required instruction for such minors who reside in said city or district." Ill — The Establishment of Sufficient Classes and Schools to be Effected by September, 1925 Section 601, paragraph d (Chapter 531, Laws of 1919), provides as follows : "The board of education of each city and of each such school district shall make necessary arrangements to begin to operate and maintain such part-time or continuation schools or classes, on the opening of the public schools in September, 1920, and shall annually thereafter in September open and maintain additional schools and classes, so that by the opening of the public schools in September, 1925, a sufficient number of such schools shall have been estabhshed as to afford the required instruction under this article to those minors who are required to attend such schools or classes." 46 The Regents have adopted the following regulations relative to the initiation of the continuation schools. "For the purpose of initiating the required program of part-time schools local boards of education shall compel the attendance, com- mencing on September 1, 1920, on an equal basis and in partial ful- fillment of the terms of the law of a certain group or groups of children affected by the law, and shall annually thereafter in Septem- ber of each year compel the attendance of a certain additional group or groups of children, provided that by September, 1925, all children affected by the law shall be reached by compulsory regulations. Local boards of education may require the attendance of children upon part-time classes on the basis of any one of the four following plans : "a. Attendance required according to distribution in age groups. If this plan is adopted all children of a given age group shall be required to attend part-time school commencing in September, 1920, and annually thereafter additional groups of children of a given age shall be required to attend, so that by September, 1925, all children affected by the law shall be in attendance. Boards of education may require the attendance in any one year of one or more given age groups under this plan of enforcement. "b. Attendance required according to distribution as to educa- tional qualifications. If this plan of enforcement is adopted all children having given educational qualifications shall be required to attend part-time schools commencing in September, 1920, and annu- ally thereafter additional groups of such children shall be required to attend, so that by September, 1925, all children affected by the law shall be in attendance. Boards of education may require the attendance in any one year of one or more groups of children having given educational qualifications. "c. Attendance required according to distribution as to resi- dence or employment. If this plan is adopted all minors resident or employed in a given ward, district or part of a city or school district shall be required to attend in September, 1920, and annually there- after all minors resident or employed in certain other wards or dis- tricts or parts of the city shall be required to attend, so that by September, 1925, all minors resident or employed in the entire city or district are in attendance. "d. Attendance required according to age distribution and edu- cational qualifications. If this plan is adopted all children of a given age with given educational qualifications shall be required to attend in September, 1920, and annually thereafter certain additional groups of children having given age and educational qualifications shall be required to attend, so that by September, 1925, all children resident or employed in the entire city or district are in attendance." In compliance with the above regulations the Board of Education at its meeting of May 26, 1920, adopted the following plan: "a. On and after September 1, 1920, all such minors between the ages of fifteen and seventeen who have not completed the ele- mentary school course. 47 "b. On and after September 1, 1921, all such minors between the ages of fifteen and eighteen who have not completed the ele- mentary school course. "c. On and after September 1, 1922, all such minors between the ages of fifteen and eighteen who have not completed the ele- mentary school course, together with all such minors under fifteen who have completed the elementary school course. "d. On and after September 1, 1923, all such minors between the ages of fifteen and eighteen who have not completed the ele- mentary school course, together with all such minors under sixteen who have completed the elementary school course. "e. On and after September 1, 1924, all such minors between the ages of fifteen and eighteen who have not completed the elementary school course, together with all such minors under eighteen who have completed the elementary school course. Summary — "(a) Ages fifteen to seventeen — Pupils who have not completed the elementary school course. Time of beginning, September, 1920. "(b) Ages fifteen to eighteen — Pupils who have not completed the elementary school course. Time of beginning, September, 1921. "(c) Pupils under fifteen years of age who have completed the elementary school course, together with all of (a) and (b). Time of beginning, September, 1922. "(d) Pupils under sixteen years of age who have completed the elementary school course, together with all under (a), (b) and (c). Time of beginning, September, 1923. "(e) Pupils under eighteen years of age who have completed the elementary school course, together with all under (a), (b), (c) and (d). Time of beginning, September, 1924. IV — Coiirses of Study Prescribed by Lazv Under the law the courses of study in such schools shall be approved by the State Commissioner of Education. Such courses are to include among other subjects instruction in American history, the rights and obliga- tions of citizenship, industrial history, economics, the essential features of the laws relating to the industries taught, and shall also include such other subjects as will enlarge the vocational intelligence of such minors. Two out of the following four courses must be established : 1, industrial course ; 2, commercial ; 3, homemaking ; 4, agricultural. Pupils must devote one-half of the required time of attendance to the subjects required by law, and the other half may be devoted to elective subjects in the courses enumerated. V — Required Attendance of Minors Section 601, paragraph e, of the State Education Law, reads as follows : "Each minor under the age of eighteen years, who is not in regular attendance upon a public, private or parochial school, or who is regularly and lawfully employed in some occupation or ser- vice, unless such minor has completed a four-year secondary course of instruction approved by the Regents of the University, shall 48 attend a part-time or continuation school or class in the city or district in which such minor resides or may be employed. Such attendance shall be for not less than four hours per week and not more than eight hours per week for each week which such school or class is in session except that the school authorities may, subject to the approval of the Commissioner of Education, permit any such minor to increase the number of hours per week of required attendance and decrease the number of weeks of required attendance. Such minor who is tem- porarily out of regular employment or service shall attend such school not less than twenty hours per week. The attendance upon a part- time or continuation school or class shall be between the hours of eight o'clock forenoon and five o'clock afternoon." Section 601, paragraph h: "The parent, guardian or other person having the custody or control of a minor who is required under the provisions of this article to attend a part-time or continuation school or class shall cause such minor to attend such school or class. A parent, guardian or other person who refuses or fails to comply with this provision of the law shall be deemed guilty of a misdemeanor and upon conviction shall be subject to a fine of not more than one hundred dollars or by im- prisonment for not more than ten days, or both such fine and imprisonment, at the discretion of the court. Any minor under six- teeen years of age who fails to attend upon instruction as defined by this article shall be subject to the provisions of section 635 of the Edu- cation Law, and a minor over sixteen years of age who fails to attend upon instruction as required by this act may be punished for any such violation by a fine not exceeding ten dollars, or by imprisonment for not more than ten days, or by both such fine and imprisonment." Section 601, paragraph i: "Any person, firm or corporation employing a minor between the ages of fourteen and eighteen years shall permit the attendance of such minor upon a part-time school or class whenever such part-time school or class shall have been established in the city or district where the minor resides or may be employed, and upon the termination of employment of any such minor the employer shall return within three days the employment certificate of such minor by mail to the school authorities, and a person, firm or corporation employing a minor over fourteen years of age and less than eighteen years of age contrary to the provisions of this article shall be subject to a fine of not less than twenty-five dollars and not more than one hundred dollars for each offense, or by imprisonment in the city or county jail for not less than five days and not more than ten days, or by such fine and im- prisonment, at the discretion of the court. A person, firm or cor- poration, which has in its employ a minor who fails to attend a part- time or continuation school or class as required herein, shall imme- diately discontinue the services of such minor upon receiving from the school authorities written notice of the failure of such minor to attend such part-time or continuation school or class, and a person, firm or corporation violating this provision of law shall be subject to a fine of fifty dollars for each offense." 49 Section 601, paragraph j : "The board of education of each city or district having a popula- tion of five thousand or "more inhabitants is hereby required to enforce the provisions of this law, and the Commissioner of Education is hereby charged with the duty and vested with necessary authority to supervise the enforcement and administration of this act." Aims and Purposes of Continuation Schools New York State since 1913 has had upon its statute books a continua- tion school law which authorized boards of education to establish con- tinuation classes for workers and which made it compulsory upon the part of employed minors to attend such schools when established. Since February, 1917, the Board of Education has conducted a number of such classes. The law now in force makes it not merely permissive but mandatory for the Board of Education to establish such classes. The necessity for taking care of the large group of minors who had discontinued attendance upon full time schools and who had entered upon employment has for some years been apparent to many. So much so that continuation schools were organized in a number of states (Wisconsin in 1911, Pennsylvania in 1915), which gradually increased until now nine- teen of our states have continuation schools in operation. This necessity was forcibly emphasized by the lessons of the World War which brought home to us the urgent need of reconstructing our educational program and of making much greater efforts toward widening the scope of educational opportunities for all groups of our citizenship. Reliance upon evening school attendance by employed minors was un- successful. Compulsory attendance at evening schools by such groups was difficult to enforce. Voluntary attendance was negligible. In New York City alone it is estimated that there are over 200,000 working children under the age of eighteen who had not completed a high school course, of whom very few attend the evening elementary or high schools. These young workers with inadequate schooling are not equipped to meet the problems and demands of modem city life. They drift from job to job in work of a blind alley character, in work that is uncongenial or enervat- ing, without any outlook for personal progress or self development. Such groups form ready prey for demagogues and preachers of discontent. The conservation of such of our youth is the primary purpose and aim of the continuation schools. Commissioner Finley has very aptly formulated the purposes of the compulsory continuation school law in a recent statement. He states : "It was with a clear recognition of the need and right of work- ing children for adequate educational opportunities which would better fit them for their duties as citizens, that the Legislature of 1919 passed and Governor Alfred E. Smith signed the part-time school law, which it seems to me might well be called the 'Children's Charter,' because of the guarantee which it makes on the part of the State to all children who live in this Commonwealth. I regard boys and girls who early in life enter upon vocational pursuits as pecu- liarly of concern to the State, and I hold as a solemn obligation this 50 great opportunity which has come to us to conserve their interests, for certainly as never before, may it be truly said that our national future depends upon the ideals of our youth, upon their faith in democracy and their fitness for it. These many thousands of 14, 15, 16 and 17-year old children who every year leave the schools con- stitute such a large portion of our citizenship that they become with- out doubt the very foundation of society. "I regard the purpose of these schools as being of a twofold nature : for the preparation of youth for participation as citizens in the political life of the State, and for the guidance toward and the training of youth for useful occupations. These two aspects are com- plementary each to the other. Teaching in the part-time school will include the history and theory of our government and social organiza- tion and such vocational instruction as will best aid each child to reahze a life of fullest usefulness. Our education for citizenship has not always been so definitely organized in its vocational phases as we might well wish it to be. Preparation for industrial occupations, commercial occupations, agricultural occupations and homemaking should be included in the opportunity offered in a plan of free education under public supervision and control, each com- munity determining the scope of that vocational opportunity in rela- tion to its special needs. "Finally, I would say, that the part-time school is truly demo- cratic only because it is compulsory ; in other words, being compulsory it will truly be for all children rather than a favored few who might- secure its advantages were attendance to depend upon desire and ability to elect it." Specific Aims 1. Vocational Guidance. — To provide vocational experience to assist in the choice of an occupation, and when that choice has been wisely made to increase the worker's proficiency in it to the end that he will advance more rapidly toward the goal he has set for himself. The monotony of modern industry, the high speed of production, the lack of interest in an intelligent development of the worker leave the boy or girl the victim of chance and circumstance. By placing the boy or girl actually at work in a machine shop, printing shop, cooking room or office the continuation school provides first-hand opportunity for observation and intelligent guidance. It becomes possible to analyze special capabilities, to allow for inherent failings, and with these as a basis to map out a vocational career. 2. Co-ordination with Industry. — To supplement this phase of voca- tional guidance by co-operation with the industry through visits to em- ployers and to follow up the careers of all pupils as far as possible. 3. Placement. — To find suitable jobs for pupils and in accord with the vocational program advised. This is incidental to the foregoing. 4. Social Stability. — To allay the social unrest through the only per- manent means, the substitution of a rational intelligent desire for advance- ment in place of blind and sullen resentment. When the restless, poorly paid, unskilled worker is given opportunity to develop himself this desire will lead to better workers rather than to slacking and sabotage. When 51 such aid comes from a community the worker will have more respect for that community and its government. The continuation school is another step toward a full realization of the American doctrine of an equal opportunity for all. 5. Health. — To conserve and improve the health of the worker. Sys- tematic development of hygienic habits with the emphasis upon their in- dustrial value will be coupled by inspection by doctors and nurses. 6. Socialisation. — To create a more healthful social life for the worker through cooperation with social agencies. 7. Practical English and Arithmetic . 8. .Civic Responsibility. — To create the good citizen through the teach- ing of elementary history, economics and civics, with a persistent reference to current events and with attention to habitually good civic conduct. Budget Items To carry out the provisions of the law will entail expenditures of sev- eral kinds: (1) for teachers, (2) for supplies and equipment, (3) for rental of school accommodations with the accompanying cost of building altera- tions and the purchase of classroom furniture, etc., (4) for janitorial service and operation of plant, (5) for attendance officers for enforcement of the law. For the above items the sum of $2,182,398.32 is requested. Present and Proposed Organisation. — The following table shows the schools now organized and the schools to be organized this fall and during 1921: Table XII — Present and Proposed Continuation Schools {Designation of School Indicated) Borough. Now in Operation. To be Organized — Fall 1920. To be Organized — Feb., 1921. To be Organized — Sept., 1921. Total. Manhattan . . . East Side West Side Commercial Harlem Boys Harlem Girls 5 Bronx Bronx Boys Bronx Girls 2 Brooklyn Brooklyn Boys East New York Bay Ridge Greenpoint Williamsburg Brooklyn — Girls Commercial 7 Queens Queens 1 Richmond. . . . Staten Island 1 Totals 5 4 4 3 16 52 Table XIII — Present and Anticipated Register in Continuation Schools School. June, 1920. Dec, 1920. Feb., 1921. Sept., 1921. Date of Opening. Manhattan — 1. East Side 2,040 1,368 4,040 2,568 8,000 4,700 2,400 9,800 6,000 4,800 1,700 1,700 Feb., 1917 2. West Side 3. Commercial 4. Harlem — Boys 5. Harlem — Girls Feb., 1920 Feb., 1921 Sept., 1921 Sept., 1921 Bronx — 6. Bronx — Boys 7. Bronx — Girls 2,500 5,200 2,300 7,200 4,600 Sept., 1920 Feb., 1921 Brooklyn — 8. Brooklyn — Boys . . . . ^ . . . 9. East New York 1,725 2,889 1,600 1,600 1,000 3,800 3,100 3,100 2,700 2,200 2,200 5,300 5,100 4,100 5,200 4,400 4,400 1,700 May, 1919 Sept., 1920 10. Greenpoint 11. Bay Ridge 12. Brooklyn— Girls 13. Williamsburg Sept., 1920 Sept., 1920 Feb., 1921 Feb., 1921 14. Commercial Sept., 1921 'Queens — 15. Queens with annexes .... 1,600 2,600 3,600 Sept., 1920 Richmond — 16. Staten Island with an- nexes 268 468 700 900 April, 1920 Total 5,401 18,265 43,000 70,500 Table XIV — Estimate of Teachers Needed for Fall of 1920 and During 1921 Position. Perma- nently employed Mar. 31, 1920. Vacancies Mar. 31, 1920. Required for Fall of 1920. Required for Feb., 1921. Required for Sept., 1921. Totals. i 7 2 14 3 "6 10 4 3 45 52 '4 25 7 5 88 100 '3 • 27 8 6 96 110 Teachers in Charge . Clerks 14 69 Teachers (H. S.) . . . Teachers (Voc.) .... Teachers (El.) Teachers (El.) 21 14 243 265 32 27 120 229 250 658 Estimate Schedule 2 $97,581 13 Estimate Schedule 8 $56,450 00 Estimate Schedule 8 $253,155 00 Estimate Schedule 8 $423,797 89 Estimate Schedule 8 $153,453 04 In considering the request for additional teachers for the fall of 1920 and for the year 1921, it is to be borne in mind that such teachers are not 53 only for the new schools that will be organized but also for the increased register in schools now in operation that is anticipated as the plan of en- ■forcernent of the law is executed. The schools as organized at present are opened from 8 to 5 for two sessions daily, morning and afternoon for five days a week. A class attends one session of four hours on one day a week either morning or afternoon. The teacher teaches during one session per day (4 hours) and devotes two hours to other phases of work. Prior to this term the classes averaged 20 pupils so that one teacher cared for 100 pupils. The above estimate of teachers needed for 1921 is based upon the rate of 25 pupils to a group or 125 to a teacher. Supervision. The initiation of a new system of schools brings with it many problems of which one of the most important is that related to teach- ing. The work of instructing the adolescent boys or girls who comprise the group that come under the provisions of the new law, particularly in the vocational, homemaking and commercial subjects, will require the closest supervision and guidance if it is to be efifectively done. In order to pro- vide such technical supervision provision is made for the services of three supervisors in commercial, home economics and industrial subjects, involv- ing the amount of $12,000. State Aid. The compulsory continuation school law provides that state aid be apportioned by the State Commissioner to the extent of one-half of the salary paid to a teacher in such schools, not to exceed one thousand dollars, provided the organization and administration, including the course of study and supervision of such schools, is approved. School Building Accommodations. The compulsory continuation school law imposes heavy financial and administrative problems upon the Board of Education. Not the least of these is that involved in providing suitable school accommodations for the thousands of children who come within the provisions of the law. Particularly is this so at this moment when we are concerned with the serious problem of mitigating the condi- tions of congestion now obtaining in our regular schools. The only recourse open to us to provide accommodations for continua- tion schools is to rent space in suitable buildings. For such purpose it is estimated by the Director of Continuation Schools that 179,000 square feet will be required for which an item for $135,000 has been inserted in the budget estimate. For necessary alterations to convert such rented space it is estimated that $112,000 will be needed and for classroom equipment an item for $65,194.80 has been included. Attendance Officers. The law provides that the Board of Education shall enforce the provisions requiring the attendance of those minors in- volved. For such purpose attendance officers will be necessary, and budget- ary provision for 42 attendance officers and 2 district supervising attendance officers to be appointed during 1920 was included in this year's budget. For 1921. with the proposed extension of the group of young workers to be brought under the law, it will be necessary to appoint 60 additional offi- cers with seven district supervising officers. For such additional positions $84,247 will be needed, making a total of $154,875. The enforcement of the continuation school law involves not only minor but parent and employer and will entail, particularly during the first few years, considerable work 54 upon the Attendance Bureau. It is proposed to place the granting of work certificates to minors directly in the hands of the Attendance Bureau. If this proposal is consummated by legislation it will tend to lighten materially the burden of enforcing the continuation school law and to make more feasible the task of bringing the working minors back to the schools. Voluntary Continuation Classes Budget Items 1921 Estimate 1920 Apportion- ment Increase Estimate Schedule Number General School Fund — Teachers' Salaries — Industrial $23,312 00 18,240 00 57,500 00 No. 8-p. 23 General Improvement. ..... Americanization Classes ... No. 8-p. 23 No. 8-p. 23 Total $99,052 00 $58,638 86 $40,413 14 Special School Fund — Supplies, etc. — Industrial General Improvement Americanization Classes. . . . $1,099 50 750 00 1,750 00 * * * No. 19-p. 38 No. 19-p. 38 No. 19-p. 38 Total $3,599 50 Contingencie s^- General Improvement Americanization Classes. . . . $1,000 00 250 00 * * No. 11-p. 34 No. 11-p. 34 Total $1,250 00 *Included in lump sum appropriation for all continuation schools Voluntary continuation classes are classes at which, as the name implies, attendance is voluntary and which for the most part serve the adult group. Such classes are organized and conducted in neighborhood houses, settle- ments, in department stores and in factories in co-operation with industrial establishments and social agencies. They are of three types: 1. Industrial; 2, General Improvement, and 3, Americanization. 1. The Industrial Classes offer instruction in subjects closely related to the trade or occupation in which the pupils are engaged. For such classes $23,312 is requested which maintains at the higher rates of compensation now in efTect the present organization. 2. General Improvement Classes offer instruction in common branches. The request submitted is to provide for the continuance of the activity on its present basis without any extension but at the higher rates of compensa- tion now effective. 3. Americanization Classes. Instruction in these classes is offered in English to foreigners and in citizenship. For this item the amount re- quested for teachers' salaries is $57,500. Of this amount $19,500 is re- 55 quired for the proposed extension of the activity and $12,000 is for salaries of five organizers of classes. The proposed extension of the Americanization Classes is part of the program adopted by the Board of Education in its Americanization work. Both Federal and State governmental agencies are exerting every effort to reach the illiterate non-English speaking groups, particularly the foreign born mother who, on account of her home duties, cannot avail herself of the educational opportunities afforded by evening schools. The present classes have done noteworthy work and the extension of the activity is highly de- sirable. Aid is apportioned by the State for the payment of teachers' sal- aries. 56 X (a)— EVENING ELEMENTARY SCHOOLS Budget Items 1921 Estimate 1920 Apportion- ment Increase Estimate Schedule Number I. General School Fund — Salaries of Teachers, et al. — 1. Regular Sessions 2. Evening Sessions of Pro- bationary School 3. Summer Sessions $481,145 60 5,044 00 12,818 00 $335,190 00 3,880 00 9,420 00 $145,955 60 1,164 00 3,398 00 No. 11-p. 25 No. U-p. 25 No. 11-p. 25 • $499,007 60 $348,490 00 $150,517 60 II Special School Fund — 1. Supplies and Equipment . 2. Janitorial Service $24,089 64 60,977 00 *$21,415 88 *33,427 50 $2,673 76 27,549 50 No. 15-p. 36 No. 31-p. 43 $85,066 64 $54,843 38 $30,223 26 *Included in lump sum appropriations, each item respectively. The amounts given above are the amounts requested for During the past school year there were conducted 70 evening elementary schools : 34 for 75 nights, 20 for 99 nights, and 16 for 114 nights. The chief activities of the evening elementary schools comprise (a) Instruction in common branches; (b) instruction in English to foreigners; (c) instruction in special subjects such as homemaking, sewing, cooking, etc. The most important work undertaken is in the classes for English to foreigners. In this the evening elementary schools serve probably as one of our chief Americanizing agencies for such group. There ought to be little need for argument to convince one of the absolute necessity for sup- porting the work now carried on or for extending it so far as our financial ability may permit. The war made us forcibly cognizant of the potential danger that exists in an unassimilated foreign population such as is found in our large cities. The conditions that were revealed in the draft and in the army camps startled many who were unaware of the great number of aliens in our midst who after years of residence not only knew little or nothing of America and its institutions but were unable even to speak a word of its language. It was assumed before the war that the evening schools in our large cities were reaching a goodly proportion of the newly arrived aliens. The draft showed us the error of this assumption. It showed us tens of thou- sands in this city alone whom the schools had never touched. The magni- tude of the problem and its difficulties indicate the insufficiency of our past efforts and point out the need for still greater efforts on our part so that the schools may do their share in the development of Americanization in our immigrant population. 57 The Federal and the State governments are making determined efforts to reach the ilHterates and also the non-English speaking group in our cities. Chapter 415 of the Laws of 1918 prescribes that "Every minor between sixteen and twenty-one years of age who does not possess such ability to speak, read and write the English language as is required for the completion of the fifth grade of the public or private schools of the city or school district in which he resides shall attend some day or evening school or some school main- tained by an employer — throughout the entire time ^uch school is in session" — unless deemed to be physically or mentally unfit by the Commissioner of Health or by some designated official. Penalties are prescribed for non-attendance upon the part of any minor and for any one who employs such minor who fails to attend. Through the enforcement of such law, which is included in the program outlined by the State authorities, it is believed by the Evening School Department that the increased attendance resulting will make necessary the extension in number of sessions recommended. The request for 1921 calls for $481,145.60, which is an increase of $145,955.60, or 43.5 per cent, of the amount apportioned for 1920. The increase is made up largely by the increased salary rates which are now effective and which are 30 per cent, higher than prior rates. General School Fund Schedule No. 11, page 25, shows by subjects the proposed number of sessions. Most of the increase or extension of service is in the subjects of common branches, English to foreigners and community workers. The net extension of service calls for $45,398.60, or an increase of 13.5 per cent, over the apportionment for 1920. Community Work — ^Among the items for evening elementary schools is that of community worker. A community worker has charge of the com- munity night in the evening schools held on Thursday night, and also of any social activities conducted during the week. In estabhshing such Thursday night activities New York City has been a pioneer. As already pointed out, the comparative failure of the evening schools to reach more of our alien population than they did was largely due to the fact that the system operated on the assumption that the foreigners would come to school just because the school was open and free and was offering what they needed to become American citizens. But the foreigner knew that he could get along without English, because he did so. He lived among his own people, read papers in his own language, listened to speeches in his vernacular and made money. His children could speak and write all the English he needed when he had to to have intercourse with American business people. So he stayed away from evening school. Two hours' work on the top of a long day's hard work was unattractive. We had assumed that academic work in the formal atmosphere of a classroom was sufficiently inviting to draw our people. We had lost sight entirely of the fact that education is preparation for social contact between people. These aliens longed for that something which the school lacked. The community night is an attempt to inject into the school life that factor or element that had hitherto been neglected. If people of similar inclinations could be grouped into clubs on one night a week they would find a motive for coming to evening school and being "Americanized" with- 58 out being incessantly "taught." The clubs, the lectures and discussions, the dances, and physical training draw these people out of themselves into social groups, which, under proper supervision, must tend to become American in ideals and in spirit. The community night helps in teaching the English language. Valuable as the formal classroom work may be, the use of EngHsh during the social- ized evening is an indispensable aid. The community night supplies the strong motive inherent in social and recreation instincts and induces the foreigner to attend as he would his club or other places of social gathering. It also offers a means for eliminating uncouth ways and un-American customs which are rubbed off through contact with people of other races and characteristics. The community worker is the person on whom the organiza- tion of such work devolves. He is to enlist the aid of all neighborhood organ- izations or agencies working with the foreign born. He must understand the people he is working with and he must have the time to establish the contact with the neighborhood and its organizations. The following tables show statistics for previous years as to expendi- tures and as to attendance: Expenditures for Previous Years Year Amounts For Salaries Supplies 1913 1914 1915 1916 1917 1918 1919 1920 $403,028 65 478,524 11 438,105 29 264,078 36 268,216 05 274,503 68 256,393 46 335,190 00* ,851 03 23,800 82 23,488 27 10,419 18 12,491 26 *Apportioned. Table XV — Attendance by Months in Evening Elementary Schools, 1911- 1912 to 1919-1920 Year Sept. Oct. Nov. Dec. Jan. Feb. March April May June 1911- 1912- 1913- 1914- 1915- 1916- 1917- 1918- 1919- 1912. 1913. 1914. 1915. 1916. 1917, 1918. 1919. 1920. 11,284 10,380 40,015 37,541 46,069 37,842 20,936 18,742 14,729 15,665 37,273 39,833 46,711 52,576 38,077 26,422 21,637 14,266 17,888 35,457 36,557 42,699 47,811 34,656 26,777 21,664 15,306 17,277 33,875 34,518 39,242 43,567 28,920 23,083 16,245 14,367 15,938 28,364 30,766 35,723 40,875 25,403 21,036 15,463 14,162 14,569 23,594 26,400 29,695 33,281 21,925 19,208 14,585 13,789 14,040 25,022 29,198 4,502 8,978 2,846 8,505 2,071 4,963 59 X (b)— EVENING HIGH SCHOOLS Budget Items 1921 Estimate Apportion- ment 1920 Increase Estimate Schedule Number I. General School Fund — 1. Salaries $797,511 00 $514,573 74 $282,937 26 No. 10-p. 25 II. Special School Fund — 1. Supplies and Equipment. 2. Janitorial Service $20,296 59 34,000 00 $18,632 14* 17,066 00* $1,664 45 16,934 00 Total $54,296 59 $35,698 14 $18,598 45 ♦Included in lump sum appropriations. Amounts indicated above are amounts requested. The evening high schools offer instruction in all regular secondary sub- jects to pupils who are elementary school graduates or who have received an equivalent education. The courses offered in academic, commercial and industrial subjects parallel the courses offered in the regular day high schools. During the past year sixteen evening high schools were conducted, seven in Manhattan, two in The Bronx, six in Brooklyn, and one in Rich- mond. The following table shows by months the average nightly attend- ance for the period 1914 to 1920: Table XVI — Average Nightly Attendance — Evening High Schools Month September. . . . October November. . . . December . . . , January February March April May June 1913-14 16,705 15,112 14,958 13,367 11,849 14,123 12,116 11,824 1914-15 22,498 22,586 18,486 27,212 18,395 18,605 16,375 7,985 1915-16 21,398 24,202 19,975 17,279 14,795 17,462 14,642 13,680 13,590 1916-17 12,276 17,071 15,503 13,888 12,864 14,573 13,545 12,081 11,576 1,173 1917-18 13,184 16,400 15,393 13,542 10,899 13,770 13,324 11,382 10,511 5,779 1918-19 14,051 14,605 12,664 12,638 11,765 16,069 14,009 12,877 11,832 6,928 1919-20 17,315 18,482 16,598 15,136 13,165 14,934 14,646 13,244 12,036 7,700 The request for 1921 calls for an appropriation of $797,511, which involves an increase of $282,937.26 over the amount allowed for 1920. Of this increase, $154,373.12 represents the increased cost of the present organ- ization at the higher rates of compensation now in effect. For extension of service $128,565.14 is requested which represents an expansion of less than 20 per cent. The increase is due in part to the in- crease in number of sessions proposed for 1921 for various subjects to take 60 care of the increased registration anticipated by the Evening School De- partment. It is also in part accounted for by the extension of the school season in some courses in some of the schools from 120 nights to 190 nights. Most of the schools will now operate in part, at least, on the 190-night basis. Together with this extension in length of season thirteen of the schools have operated under a four period per night plan. Through such modification of the organization the evening high school courses have been granted recognition by the Regents as the equivalent of day high school courses and now lead to admission to colleges or to professional schools or to eligibility for Regents' certificates. Expenditures in Previous Years Year Teachers' Salaries 1913 $352,489.04 1914 444,335.48 1915 471,648.93 1916 420,326.14 1917 438,033.67 1918 453,753.81 1919 476,135.33 1920 514,573.74* * Apportionment. 61 X. (c) EVENING TRADE SCHOOLS Budget Items 1921 Estimate 1920 Appor- tioned Increase Estimate Schedule Number I — General School Fund — 1. Salaries $235,020 50 $125,000 00 $110,020 50 No. 9-p. 24 II — Special School Fund — 1. Supplies and Equipment. . . 2. Janitorial Service $16,876 81 13,640 00 *$15,172 01 *5,924 76 $1,704 80 7,715 24 No. 15-p. 36 No. 31-p. 43 Total Special School Fund. . . . $30,516 81 $21,096 77 $9,420 04 *Included in lump sum appropriations, these items respectively. The amounts given above are the amounts requested for During the past year nine evening trade schools were conducted, six in Manhattan, one in Brooklyn, one in Queens and one in Richmond. In addition classes in trade subjects were conducted in some of the evening elementary and evening high schools where the school possesses shop equip- ment and facilities to make this possible. In the evening trade schools instruction is given in the trades or in industrial or homemaking subjects to pupils over sixteen years of age who are regularly employed during some part of the day. Such instruction is in subjects related to the practical work carried on in such employment. The courses in homemaking subjects are open to all women over sixteen years of age. The schools are conducted 120 nights, divided into two parts. On Monday and Wednesday evenings of each week one group of pupils attends and on Tuesdays and Thursdays another group of pupils is in attendance. Two schools are thus actually conducted. Prior to 1916 the instruction was offered for four nights per week to the same group. The present arrange- ment, effected because of financial reasons, makes it possible to serve alarger group of different students. The work is of a practical character and the instruction is given by teachers who have been largely recruited directly from the various trades. The purpose of the instruction is to afford a training which will sup- plement the daily experience of the pupil, which bears more or less directly upon his work and which will help to make him a more capable workman. Experience seems to show that the evening classes can reach and help a larger number of individuals than any other form of vocational. education. After the individual leaves day school and becomes a wage-earner he ap- preciates more fully that promotion and success in any given calling come only to those who are best fitted to compete with others. The evening trade courses offer an opportunity for increasing one's efficiency, knowledge and skill. The demand for evening trade instruction in this city has never been fully met. The following table shows the average nightly attendance by months for the past seven years. 62 Table XVU.— Average Nightly Attendance, 1913-1920 Year. Sept. Oct. Nov. Dec. Jan. Feb. Mar. Apr. May 1913-14.... 3,540 3,333 3,258 2,899 2,809 2,975 3,025 2,763 2,662 1914-15.... 4,447 4,358 3,736 5,341 3,766 3,812 3,446 3,301 1915-16. .. . 4,051 4,374 3,988 3,595 3,971 3,903 3,550 3,573 3,118 191^17. . .. 3,531 4,163 4,128 3,994 3,031 3,183 3,640 3,190 3,088 1917-18.... 3,634 4,501 4,327 4,135 3,395 3,813 4,186 3,362 2,744 1918-19. ... 3,313 3,964 3,467 3,847 4,179 4,114 3,763 3,358 3,136 1919-20.. .. 5,646 5,755 5,793 5,840 4,992 4,912 4,969 4,371 4,172 The evening trade schools, as the above table shows, had a larger at- tendance than in any previous year, winding up the season with an average nightly attendance of over one thousand more than in the preceding year. The Evening School Department anticipates a still further increase in registration. The request for 1921 calls for an appropriation of $235,020.50, as allowed by the Board of Education after a reduction from $303,595, the amount requested by the Director. The amount included in the estimate will allow of little expansion and will permit the activity to be maintained during 1921 at the higher rates of compensation according to the program which it was intended to carry through for 1920, but which had to be modified this year because of in- sufficient funds. State Aid. — The State has appreciated its responsibility of assisting in the training of persons engaged in useful employment in industries and has, by legislation, made provision for such assistance. State aid is given under section 605, chapter 531 of the Education Law, to the extent of one-half of the salary of each teacher in an approved course but not exceeding one thousand dollars on account of any one teacher. Accordingly, of the amount requested in the budget estimate for 1921, approximately* one-half will be returned by the State. Expenditures for Evening Trade Schools in Previous Years Year Salaries of Teachers 1913 $85,881 .00 1914 121,449.70 1915 131,674.23 1916 94,101 . 16 1917 106.035.52 1918 120,293.93 1919 121,171.75 1920 125,000.00 * No State aid for clerical assistants, registrars, etc. 63 X. (d) SUPERVISORS OF SPECIAL SUBJECTS IN EVENING SCHOOLS Budget Items General School Fund Estimate 1921 Appor- tioned 1920 Increase Estimate Schedule Number For Cost of Salaries $8,016 $5,760 $2,256 No. 12-p. 25 Specialized supervision is a necessity for good work in the evening schools as well as in the day schools, particularly in special subjects and in English to foreigners. Some of the teacher group recruited largely from our day school teachers are not accustomed to teaching adults, which involves peculiar elements in the teaching situation not always present in day schools. Some of the trade subject teachers are not teachers in the daytime, and while trained and skilled in their particular trades do not possess the teaching technique required. This necessitates specialized supervision. The State Department requires such specialized supervision before approving courses for purposes of apportionment of state moneys. Expenditures for this item for past years have been as follows : 1916 $2,691 .00 1917 4,188.00 1918 4,062.00 1919 1920 *5,760.00 *Apportioned. The amount requested includes provision for one new position, that of Supervisor of Trade Equipment. 64 XI— VACATION SCHOOLS Budget Items 1921 Estimate 1920 Apport Increase Per Cent. In- crease Estimate Schedule Number I — Vacation Schools-Elem. — 1. General School Fund — (a) Salaries of Teachers, et al $69,200 00 17,107 60 5,940 00 $44,396 50 *13,429 60 2,218 92 24,803 50 3,678 00 3,721 08 55.8 No. 13-p. 26 2. Special School Fund — (a) Supplies, etc (b) Janitorial Service . . No. 15-p. 36 No. 31-p. 43 Total II — Vacation High School — 1. General School Fund — (a) Salaries of Teachers, et al $92,247 60 $12,510 00 1,295 00 215 00 $60,045 02 $10,425 00 ' "65.60 $32,202 58 ■$2,085 00 1,295 00 149 40 ■ 20% No. 13-p. 26 2. Special School Fund — (a) Supplies & Equip. . . (b) Janitorial Service . . No. 15-p. 36 No.. 31-p. 43 Total Ill — Centers for Food Educa- tion — 1. General School Fund — (a) Salaries 2. Special School Fund — (a) Supplies, etc ....... . (b) Janitorial Service . . $14,020 00 $3,900 00 1,500 00 2,000 00 $10,490 60 $3,000 00 * 1,000 00 1,640 00 $3,529 40 $900 00 500 00 360 00 30.0 No. 13-p. 26 No. 15-p. 36 No. 31-p. 43 Total $7,400 00 *Included in lump sum appropriation for General Educational Supplies and Equipment. Vacation Schools — Elementary (Opportimity Classes) Vacation schools were first organized in New York City in 1898, in which year ten schools were conducted. The activities conducted included kindergarten work, nature study, drawing, printing, music, toymaking, join- ery, wood carving, cane weaving, bent-iron work, cooking, sewing, millinery, knitting, crocheting, physical training and play. That is, the emphasis was largely placed on handwork rather than bookwork. For a number of years past the vacation schools have been limited because of lack of funds to the conduct of "opportunity classes." What is an Opportunity Class? An opportunity class is a class intended primarily for work with chil- dren. (a) Who have failed of promotion the preceding June. (b) Who are overage although bright. 65 (c) Who need credit for attendance in order to comply with the provisions of the compulsory education law to obtain employment certificates. (d) Who, because of foreigii birth, need special help in English. The value of such classes may be briefly summed up as follows : 1. Reduction in cost of educating certain groups of children Over 80 per cent, of the group attending opportunity classes are children who have spent a term in a grade and who have for various reasons failed of promotion. After at- tendance at an opportunity class and after successful exami- nation such children are given a certificate which entitles them to a "trial" promotion in their own schools the following September. Careful follow-up studies made for a number of years show that of those children receiving a certificate the great majority not only successfully maintain themselves in the grades to which they have been promoted on trial but also that they subsequently make normal progress. The cost of instruction for a term is thus saved in each case. The cost of instruction per child in opportunity classes is about $3,50. The cost of day school instruction for one term is about $25 per capita. The difference over $20 is thus saved on each child granted a certificate who subsequently main- tains himself in regular classwork. 2. Relief of congestion in school The opportunity classes through accelerating the progress of children through the grades tend to relieve congestion which is in part due to non-promotion, particularly in the lower grades. 3. Incentive to continue advancement "The children who attend summer school sessions and receive certificates are imbued with ambition through a feel- ing of accomplishment and success. The depression conse- quent on loss of advancement is dispelled. The work of the; school is taken up with renewed efifort. Records of the past two years indicate that 89 per cent, of the pupils who receive certificates in vacation schools are promoted and sustain them- selves in the new grade in the fall term. The study of the progress of the children also shows that 73 per cent, of those advanced on vacation school certificates in September are also promoted in February. The escape from the loss of six months and the stigma of a holdover evidently stimulates the children to hard work." 4. Increases the educability of children that attend "The habit of concentration which is so badly shaken dur- ing the vacation period is not only saved but strengthened The unpromoted pupil fresh from the vacation school often 66 outshines the advanced child when the fall term begins. The mental inertia that always follows a period of idleness is over- come." 5. The habit of industry and application "The pupil attends vacation school voluntarily. It re- quires more than common courage to toil in the classroom while others play. The physical discomfort caused by the torrid atmosphere of the schoolroom in midsummer must also be borne. The requirements for certificates compel a perfect attendance. Self-denial of the highest type and the surrender of personal feelings to attain a remote goal are found here. The very spirit of industry and application is imbued." During the current year 46 vacation schools (elementary) were con- ducted with the following attendance : Table XVIII — Vacation School Statistics for 1920 Borough No. of Schools No. of Classes Register at End of Term Aggregate Attendance Average Daily Attendance Manhattan Bronx Brooklyn Queens Richmond 15 6 18 5 2 136 75 145 34 11 5,244 2,973 5,695 1,239 305 154,172 86,471 170,426 36,852 6,148 5,205 2,893 5,710 1,224 205 Total 46 401 15,456 454,069 15,237 There were 341 opportunity classes, 18 in Domestic Art, 15 in Domestic Science, 18 in Shopwork, 4 in Printing, 3 in Speech Improvement and 2 in Bookbinding. The register at the end of the term was 15,456, of which 13,496 took the final examinations. Of the number taking the final tests 10,208 were granted certificates. The request for 1921 calls for an appropriation of $69,200, which in- volves an increase of $24,803.50 over the sum allowed for 1920. Of this sum $13,318.50 represents the additional cost of the higher salary rates for the present organization and $11,484.55 represents the additional cost in- volved in the extension of service requested. The Director of Vacation Schools recommended the establishment of seven additional schools but this recommendation was not allowed by the budget committee of the Board of Education. The extension of service, for which funds are requested, provides for additional classes in schools now operated to take care of the numbers of pupils who apply for admission but who cannot be accommo- dated. The following table shows the number of children denied admission during the past few years : 67 Table XIX — Number of Children Denied Admission to Opportunity Classes Year No. of Classes Conducted No. Denied Admission 1915 143 140 161 245 271 401 2,690 1916 2,195 1917. 2,124 1918 1,615 1919 1,775 1920 1,930 Expenditures in Previous Years Teachers et al. Year Salaries 1913 $64,308 51 1914 72,596 74 1915 14,775 50 1916 14,536 25 1917 20,529 80 1918 31,868 44 1919 32.936 38 1920 *44,396 50 *Apportionment. Classes for Food Education and Economy For these classes the amount requested for teachers' salaries provides for the present organization at the higher rates of compensation resulting from recent legislation. These classes were initiated in 1918 by the Board of Education as a pioneer attempt in city community work in food educa- tion and food economy. The work includes instruction in food values, food preparation, food conservation and in practical food economies. The activity has been most successful and meets a real need. Vacation High School for Boys and Girls During the past season a vacation high school was conducted for the first time under the control of the Board of Education. For a number of years it had been proposed to conduct such a school for which the demand was considerable, as was evidenced by the fact that classes of this kind con- ducted under private enterprise, and for which fees were charged, were attended by large numbers of pupils. The high school was open for 40 sessions and received as students day high school students who were desirous of making up lost ground, or gain- ing advanced credit. Classes were conducted in Bookkeeping, Community 68 Civics, Economics, English, French, History, Latin, Mathematics, Spanish, Stenography and Typewriting. To students completing the courses successfully certificates were granted which will give them advanced standing in the fall term in the regular day high schools. Over 1900 students enrolled. The amount requested for 1921 calls for $12,510, an increase over the amount allowed for 1920 of $2,085, or 20 per cent. This extension was allowed by the Board of Education in lieu of the request by the Director of Vacation Schools for an additional $10,425 for conducting an additional summer high school. 69 XII— SUMMER SESSIONS OF INSTITUTIONAL CLASSES Classes for Delinquent and Handicapped Children Budget Items Item Estimate 1921 1920 Appor- tioned Increase Per Cent. of Increase Estimate Schedule Number I. General SchoollFund — 1. Teachers II. Special School Fund — 1. Supplies $20,404 80 4,000 00 $7,488 00 * $12,916 80 63.3 14, p. 26 15, p. 36 wmg ♦Included in gross amount allowed for General Educational Supplies and Equipment, requested for 1920 was $2,080. The activity carried on in these classes is described in the folio statement taken from the Director's report : Institutional Classes, Classes for Delinquent and Handicapped Children Throughout the school year classes for delinquent, defective, crippled, blind, deaf and tuberculous children are conducted as annexes to various elementary schools. The closing of the schools for the summer does not liberate" the unfortunate children of these groups for play and recreation during the vacation period. The delinquent and defective groups are incar- cerated and isolated socially from their communities. The physically handicapped are confined by their infirmities. If the withdrawal of edu- cative influences is added to the social isolation, the problem of unadjust- ment in children is greatly aggravated and the progress of the unfortunate children toward useful positions in the community is greatly retarded. It would be cold-blooded to abandon this large group of urban childhood to months of listless imprisonment. " In order to preserve the continuity in the training of these children, the classes were continued under the vacation school department. The services of specialists in teaching each particular type of child were secured by continuing the person conducting the class during the school year or by a careful selection of qualified substitutes. At the beginning of the summer a conference with the teachers was held. A daily program of work was arranged for each individual group, after a special diagnosis of the physical and mental conditions of the individuals comprising the various classes. In arranging the programs provision was made for an increase in the periods and forms of recreation in order to conform to the spirit of the vacation season. Passive recreation, handwork, story telling, games, swings, slides, athletics, manual training, and other play forms were inter- spersed through the day's work. " Special features were : " (a) Bus rides paid for from the driving fund for crippled children. " (b) Excursions on municipal ferries and tours to points of historical interest. "(c) Trips on the sight-seeing yacht Tourist furnished free of cost by Captain Roberts. 70 " (d) Exhibitions of handcraft work, to which parents and interested adults were invited. "(e) In rural districts nature study and gardening were taken up. " The physical welfare of the children was safeguarded, as during the school term by physical inspection, medical attention, nurse attendance, hygienic precautions and attention to proper nutrition." The increase is accounted for by the fact that more of such institutional groups have during the current school year become annexes of day schools through action of the Board of Superintendents and the Board of Education and by reason of the higher rates of compensation in effect. Amounts Expended in Previous Years for Teachers' Salaries Year Amount 1916 $2,307 00 1917 2.570 50 1918 2,899 00 1919 2,713 25 1920 7,488 00 (Apportioned) 71 XIII— VACATION PLAYGROUNDS Budget Items Regular Playgrounds 1921 Estimate 1920 Apportioned Increase Estimate Schedule Number General School Fund — 1. Salaries Special School Fund — • 1. Supplies 2. Janitorial Service $144,856 35 69,969'00 37,440 00 $94,353 75 $50,502 60 No. 16, p. 27 All Day Care of Children — General School Fund — 1. Salaries Special School Fund — 1. Supplies 2. Janitorial Service $12,500 00 1,544 00 4,800 00 $7,992 00 $4,508 00 No. 16, p. 27 The vacation playgrounds conducted are of three types based upon the age interests of the children involved, the home conditions and the structural adaptability of the school buildings used. They are : (a) Mothers' and babies' playgrounds. (b) Playgrounds for older children. (c) Play schools for the all-day care of children. (a) Playgrounds for Mothers and Babies This type of playground is conducted for children in arms accompanied by mothers or older sisters and for youngsters from four to seven years of age. The buildings used were those having limited play space with sub- divided indoor and outdoor yards, conditions that prohibited the more vigorous activities that appeal to the older children. These play centers offer the only available means in many congested sections far away from parks or open spaces of escape from the heat of the summer. (b) Playgrounds for Older Children These served children from 7 to 14 years of age and were located in schools that had large play areas free of obstruction and adapted to the activities conducted. (c) Play Schools for the All-Day Care of Children The aims of this type of school were to serve as a substitute for the home and the school during the vacation period, to conserve their influence particularly for those children deprived of parental care and control be- cause parents were at work, to take care of children suffering from im- proper and irregular nourishment. These schools, in co-operation with the Board of Health and other agencies, also cared for children who had physical ailments or defects. The number of playgrounds of the various types conducted during the current year together with the aggregate attendance and average daily attendance are shown in the following table : 72 Table XX — Attendance at Playgrounds, 1920 Kind Number Aggregate Attendance Average Daily- Attendance Mothers and Babies .... Indoor Outdoor Kindergarten Centers. . . All Day Care 64 105 8 3 16 880,399 3,679,137 81,434 14,070 115,381 21,976 64,747 2,218 353 2,913 Total 196 4,770,421 92,207 The request of the department for regular playgrounds involves an in- crease of $50,502.60 over the amount apportioned for 1920, or 53.5 per cent. The increased rates of compensation that went into effect as of August 1st account for 30 per cent, increase. The net extension of service for 1921 (at higher rates of compensation) involves an increase in cost of $22,196 and is accounted for by the proposed extension of the activity in present organized playgrounds and the opening of ten additional playgrounds, for which sixty positions are requested. For play schools for the all- day care of children the request involves an increase over the 1920 appropriation of $4,508 of which again the major part is due to the higher salary schedules. In planning the organization of this activity and in determining the establishment of new centers the utmost care is exercised. The necessity for careful planning in a field of activity such as this, related to recreation and engaged in by a number of agencies both municipal and private, has been thoroughly appreciated. Hitherto, owing to the lack of a compre- hensive recreational program in New York, there has been a lack of co- ordination in the efforts of the various agencies aiming to provide play- facilities which has led to wasteful duplication and competition. The Board of Education, the Department of Parks, the Police Department, the Parks and Playground Association, the Borough Presidents, settlements and neighborhood associations, et al., all conduct some form of indoor or out- door playgrounds or provide other forms of play facilities. As a result in previous years play facilities have frequently been concentrated in some .•sections of the city while other sections have lacked. Before the location of the playgrounds of the Board of Education is determined, a preliminary survey of the play needs and play facilities of the city is made. The play- grounds of the Board of Education are then distributed in accordance with the needs of those districts not otherwise provided for so that there is no avoidable duplication or competition. As a result an economical and intelli- gent program of work is developed. 7i Expenditures in past years. The following table shows the expendi- tures (for salaries) for a number of years back. Regular All Day Care Year Sessions of Children Total 1913. ." $84,745 10 $84,745 10 1914 85,360 42 85,360 42 1915 53,429 55 53,429 55 1916 55,975 12 55,975 12 1917 53,416 93 53,416 93 1918 71,909 93 $4,682 53 76,592 46 1919 72,781 28 4,265 75 77,047 03 1920 94,353 75* 7,992 00 102,345 75 *Apportionment. , The above table shows that in 1913 the amount expended was about $85,000, which was materially reduced in 1915 to 1917. The activity as a result did not develop nor expand during those years as it should have to meet the pressing demands for play facilities in this large city. At one time in past years the playgrounds were open for ten weeks, six days per week, but later the season was reduced to eight weeks. In 1915-1917 the length of the season was still further reduced to seven weeks with only five days a week. During the season of 1918 the present officials realized that, while the school children were given an opportunity for recreation for seven weeks they were turned loose on the streets for three weeks, exposed to the perils, both physical and moral, of the city's streets. Honorable John F. Hylan, Mayor of the city, issued a proclamation urging increased and continuous opportunities for play for children. In that year the playgrounds were open until September 1st. During the present city administration the appropria- tions allowed for this activity have shown material increases. The imperative necessity for providing adequate play space and play facilities in this city, with its thickly congested population and its increasingly heavy traffic, must be patent to every one. The list of casualties from street accidents is appalling. During the calendar year 767 persons lost their lives in this city in automobile accidents, and during the first seven months of 1920, 398 fatalities occurred, which does not include those injured. Of these total deaths, 140 have been little children under five years of age, and the number under ten was 458. The conditions are such as to arouse grave concern. Our present playgrounds undoubtedly have conserved the life of the children, by keeping them off the streets. With more extensive facilities and opportunities much more could be accomplished. 74 XIV— SCHOOL BATHS Budget Items Estimate 1921 Amount Apportioned for 1920 Increase Estimate Schedule Number I. General School Fund — Salaries of Attendants, et al. 1. Regular Sessions 2. Summer Sessions $53,898 00 18,142 80 $26,040 00 6,912 00 $27,858 00 11,230 80 No. 17-p. 28 No. 17-p. 28 Total $72,040 80 $32,952 00 $39,088 80 II, Special School Fund — Janitorial Service.. • . 8,934 00 4,800 00 4,134 00 No. 3i-p. 43 One of the activities included under the term "Extension Activities" is the conduct of Swimming' Pools and Shower Baths. There is no more valuable activity conducted in the system, nor one which offers so much in return for the expenditure involved. The swimming pools olf'er opportunities for healthful exercise and recreation. Ability to swim adds to the confidence and courage of the individual. The values of swimming have been recognized in many of the secondary schools and colleges of the country, where ability to swim is one of the requirements for graduation. If our New York schools had adequate facilities such ability might with justification be required of all our pupils. There are eight swimming pools in school buildings and these are used both day and night throughout the school year and also during the summer session. The activity has been very popular, not only with those who attend the schools in the day time, but also with the adults. Shower baths are now maintained in 40 school buildings. It is planned to extend the service to two additional schools during 1921, involving an increase of $3,120. The greater part of the increase over the amount appor- tioned for 1920 is due to the increase in rates of compensation. Last October the Board of Education raised the compensation of teachers of swimming and bath attendants from $2 per session to $3, because at the former rates it was impossible to obtain persons to accept positions. The legislation sub- sequently enacted raised these rates 30 per cent., making the compensation $3.90 per session. Accordingly, of the $27,858 increase of the request for 1921 over the amount allowed for 1920, $24,738, or most of it, is due to the higher compensation now in effect. Summer Sessions — During the summer the baths are open during the day to the children attending the vacation playgrounds, and some of them are open in the evening for adults. During the current season, 36 baths were conducted. 75 It is planned to extend the summer activity to 7 additional centers, involving an increased cost of $4,664. The demands for the use of these facilities have been outspoken and impressive upon the part of the people of the city. Expenditures in pre- vious years have been as follows : Year 1913 1914 1915 1916 1917 191« 1919 1920 Regular Sessions $8,603 50 17,754 28 18,289 34 8,768 50 14,998 66 13,376 56 20,219 30 $26,040 00* Summer Sessions $2,687 84 3,325 62 1,643 89 2,048 00 2,578 91 3,120 25 ^6,912 00* 6,993 00** Total m,291 34 21,079 90 19,933 23 10,816 50 17,577 57 13,376 56 23,339 55 / $32,952 001 \ 6,993 OOj ^Apportioned. **An application for 16,993.00, Special Revenue Bonds, approved by the Board of Estimate and Apportionment is now before the Board of Aldermen. 76 XV— COMMUNITY CENTERS, CIVIC FORUMS AND EXTENDED USE OF SCHOOL BUILDINGS Budget Items — 1921 General School Fund 1921 Estimate 1920 Appor- tionment Increase Estimate Schedule Number Cost of Salaries — Regular Sessions $96,933 48 5,967 00 $55,938 00 4,590 00 $40,995 48 1,377 00 No. 15-p. 27 No. 15-p. 27 Summer Sessions Total $102,900 48 1,300 00 5,694 00 $60,528 00 1,000 00 4,380 00 $42,372 48 300 00 1,314 00 Civic Forums — Directors of No. 15-p. 27 No. 15-p. 27 Supervisors of Extended Use of School Buildings Total $109,894 48 $65,908 00 $43,986 48 Special School Fund — 1. Supplies and Equipment. . . $29,532 50 100,093 00 4,575 00 ** 70,833 67 4,876 95 No. 15-p. 36 2. Janitorial Service — Regular Sessions $29,159 3d> *301 95 No. 31-p. 43 No. 31-p. 43 Summer Sessions Total $134,200 50 *Decrease. **Included in lump sum appropriation for 1920 for General Educational Supplies and Equipment. The amount requested was $16,070.20. Community and Recreation Centers were organized in this city and elsewhere, in response to the demand that the school should not limit its activities to the instruction of children during the day, but that it should "minister to the other needs of the community besides the purely educa- tional." The needs of the community for recreation, social intercourse and for continuation instruction have caused the school to assume a wider range of activities. Our evening centers when first organized were estabHshed as recreation centers for the young boy and girl just out of school. Gradually these centers changed in character and became social centers for the community, catering more and more to the adult group. Their aim also developed from that of supplying facilities for recreation solely to that of providing oppor- tunities of a social character tending to arouse community consciousness. The work of the community and recreation centers as it has developed has become more and more valuable. In the first place, it provides proper forms of civic training, recreation and social education to our adolescent group between the time of leaving school and maturity. The athletic and physical training activities conducted promote bodily self-improvement, the entertainments, festivals and dances give social training, the debates, speak- ing contests and dramatics provide educational opportunities in language and literature, and the choruses and orchestras develop the music. 77 In the second place it provides opportunities for recreation to the adult groups. The development of industry, with its extensive use of machinery, has changed most forms of labor to work that is enervating in character. The reduction of working hours has increased the leisure time of our people, who have had little training in the use of such leisure. As a result com- mercialized forms of recreation have developed rapidly, all offering their attractions. The leisure time, instead of being a benefit, has become a source of danger. The community center aims to provide wholesome forms of adult recreation, in which participation rather than mere entertainment is emphasized. In addition to the above, the community center has played a successful part in developing civic and social consciousness in its neighborhood groups. It has been a most important agency for Americanization, so much so that the traditional evening school is borrowing its methods in dealing with the immigrant. Present Organisation — The following table gives data showing by boroughs the number of centers operated during the past school year : Borough Community & Recreation Centers of Bd. of Ed. Community Centers Organized By Citizen Groups* Total Manhattan Bronx Brooklyn ; Queens Richmond 28 6 17 3 56 16 36 16 2 84 22 53 19 2 Total 54 126 180 *Partially or wholly self supporting and self governing. The request for 1921 (regular sessions) amounts to $96,933.48, an increase of $40,995.48 over the amount allowed for 1920, $55,938. Of this increase, $16,781.40 represents the cost of the increased compensation now effective, on the basis of the organization provided for 1920. Part of the cost is due to a change in personnel. It has been found necessary to replace some teachers in charge by principals, who receive higher compensation. In the second place, owing -to the demands imposed by a largely increased attendance, it has been necessary to increase the number of sessions to afford the required facilities for different neighborhood groups. 78 The expenditures for this activity for previous years for salaries have been as follows : Summer Year Regular Sessions Sessions 1913 $83,837.64 1914 87,046.73 1915 49,549.98 1916 19,379.00 1917 35,859.10 $2,832.50 1918 41,763.08 2,839.70 1919 43,089.03 2,776.70 1920 $55,938.00 $4,590.00 Apportioned In 1914 the expenditures were over $87,000, which was reduced almost one-half in 1915. A further reduction was made in 1916, when financial inability compelled the Board of Education to reduce all activities not abso- lutely mandatory in character. Since then the allowance has been gradually increased, althought last year's expenditures were less than 50 per cent, of those for 1914. The limitations imposed by the lack of adequate financial support have lead to the organization of voluntary self-supporting centers by community groups. Such centers are under the close supervision of the department to the same extent as regular official centers. As a result the extension of the community center activity depends largely upon the organization of more and more of these voluntary centers. At these voluntary centers the jani- torial service is a cost that is borne by the Board of Education. Summer Sessions — The experiment conducted the last few seasons of keeping open some of the centers during the summer has proven very suc- cessful. The usual closing down of the centers on May 31st had in the past tended to interrupt the continuity of the activity of the various group organizations, who were compelled to seek other meeting places or to disband. The results of the year's work of the centers was largely lost and the facil- ities of our buildings were not available at a time when their use was especially sought. The amount involved is slight and is fully justified by the results obtained. No extension is involved, the increase over the amount allowed for 1920 being due to the higher rates of compensation now in effect. Civic Forums — Civic Forums were organized in a number of our schools in accordance with the requirements of Section 456 of the State Education Law : " For Civic Forums and Community Centers — Upon the peti- tion of at least twenty-five citizens residing within the district or city, the trustees or board of education in each school district or city shall organize and conduct community centers for civic purposes, 79 and civic forums in the several school districts and cities, to promote and advance principles of Americanization among the residents of the state. The trustees or board of education in each school district or city, when organizing such community centers or civic forums, shall provide funds for the maintenance and support of such com- munity centers and civic forums, and shall prescribe regulations for their conduct and supervision, provided that nothing herein contained shall prohibit the trustees of such school district or the board of education to prescribe and adopt rules and regulations to make such community centers or civic forums self-supporting as far as prac- ticable. Such community centers and civic forums shall be at all times under the control of the trustees or board of education in each school district or city, and shall be non-exclusive and open to the general public." The presence of radicals at some of these forums led to the expression of sentiments which were to be deplored and which aroused considerable criticism. The attempt to control the situation in some cases has resulted in the elimination of the free discussion which is a vital element at such meetings, if they are to be more than lectures. In order to provide persons who may be assigned officially to take charge of such forums, the estimate for 1921 includes an item for 5 directors at a cost of $1,300, which item was allowed for 1920. Extended Use of School Buildings An off shot of the community center movement is the wider use of the school plant. The Board of Education has for years granted permission to different groups or organizations the use of our school buildings in accordance v/ith prescribed rules and regulations. Such use is ordinarily requested for separate occasions rather than for a continuous period. The control of the use of our buildings in such manner was in past years dis- tributed among five committees of the Board, with the result that responsi- bility was scattered, red tape was developed and the control was lax. Last year I placed all matters relating to such use of buildings under the juris- diction of the Director of Community Centers. Rules and regulations seek- ing to offer the widest opportunity for use of our buildings to responsible groups of proper standing have been drawn up. In granting the use of our buildings to outside groups, it is essential that proper investigation be made of the applicants in order to assure proper protection of school plant and equipment, the maintenance of proper stand- ards in the activities conducted, protection against the commercialization of the schools, and the safe-guarding of the schools against dangerous, propaganda. Accordingly, it is highly desirable that some form of regular inspec- torial control be exercised over such use of school buildings. For such inspectorial control provision is requested for 1921 for salaries of two supervisors at a cost of $5,694. For these two positions, $4,380 was allowed for the current year, the difference being due to the recent increase of 30 per cent, in the rates of compensation. The following table gives data as to the number of sessions, aggregate attendance at community centers, etc., during the last school year: 80 Table XXI — Attendance at Community Centers August 1, 1919, to July 31, 1920 Borough Number of Schools Aggregate Number of Sessions Aggregate Attendance Manhattan Bronx Brooklyn Queens Richmond 95 43 88 53 17 6,018 1,284 2,694 982 147 2,244,357 590,794 828,309 179,415 18,047 296 11,125 3,860,922 81 XVI. ATHLETIC COMPETITIONS AND AFTER-SCHOOL ATHLETIC CENTERS Budget Items 1921 Estimate 1920 Appor- tionment Increase Estimate Schedule Number I — General School Fund — Salaries — 1. Athletic Competition. . . . 2. Athletic Centers II — Special School Fund — 1. Supplies and Equipment. . . 2. Janitorial Service for Ath- letic Fields $7,800 00 177,043 75 59,517 57 9,250 00 $6,000 00 80,755 00 40,000 00 *8,125 00 $1,800 00 96,288 75 19,517 57 1,125 00 No. 18-p. 28 No. 18-p. 28 No. 62-p. 54 *Inciuded in lump sum appropriation for janitorial compensation. Another instance of the wider use of the school plant is the utilization of school facilities for after-school athletics and recreation. As the con- ditions of city life tended to deprive the children to a very large extent of opportunity for play and exercise, the school has assumed responsibility for such activity. What is an After-School Athletic Center? An after-school athletic center is a center conducted in a school build- ing or on school grounds under the supervision of the Department of Physical Training of the Board of Education for the purpose of providing an opportunity for organized athletic and recreative instruction for day elementary and high school pupils. The centers are open from 3 to 5 P. M. on one or more days per week and are in charge of one or two teachers, according to the size of the group attending. Such forms of athletics and active play are conducted as the physical facilities permit. After-school athletic centers were first tried out during 1912-13 and proved so successful that since then the activity has gradually been ex- tended. Welsh Lazv Requirements. — The Welsh Law enacted in 1916 pre- scribed 200 minutes of physical training and directed recreation per week for all school children. With the limited physical accommodations avail- able in many of the schools it was impossible to comply with the require- ments of the law during the regular school hours. Accordingly, it became necessary to extend the physical training beyond the 9 to 3 P. M. school day. In many schools, therefore, the after-school athletic center has become a part of the regular school program and so serves an additional purpose. Attendance at Centers, etc. — The following table shows the number of centers operated during the last school term, together with the number of sessions for which teachers were assigned and the total attendance. Two hundred and twenty-six centers were operated and were attended by 2,413,126 children. The per capita cost per session for boys was 1.58 cents 82 and for girls 2.67 cents. A teacher of a boys' center handled an average of 193 boys per session while in the girls' center the average was 102 per session. Table XXII — After-School Athletic Center Statistics — February to June, 1920 Boys' Centres Total No. of Schools Total No. of Assign- ments Total Attend- ance Total Cost of Teachers Total Cost of Supplies Total Cost Manhattan Bronx 46 23 43 12 3,775 2,353 2,656 417 744,615 446,942 510,260 73,529 $9,437 50 5,882 50 6,640 00 1,042 50 $1,206 19 500 96 1,127 81 386 24 $10,643 69 6,383 46 Brooklyn Queens 7,767 81 1,428 74 Total 124 9 9,201 775 1,775,346 $23,002 50 1,937 50 $3,221 20 $26,223 70 Supervisors 1,937 50 Grand Total. . . 9,976 1,775,346 $24,940 00 $3,221 20 $28,161 20 Per capita cost 0158 Girls' Centres Total No. of Schools Total No. of Assign- ments Total Attend- ance Total Cost of Teachers Total Cost of Supplies Total Cost Manhattan Bronx Brooklyn Queens 39 25 27 11 2,410 1,419 1,704 714 265,926 138,282 164,262 69,210 $6,025 00 3,547 50 4,260 00 1,785 00 $127 99 257 07 245 52 122 99 $6,152 99 3,804 57 4,505 52 1,907 99 Total 102 6,247 336 637,780 $15,617 50 840 00 $753 57 $16,371 07 Supervisors 840 00 Grand Total . . . 6,583 637,780 $16,457 50 $753 57 $17,211 07 Per capita cost 0267 The athletic centers have been enthusiastically received by parents, principals and neighborhood associations throughout the city. Gangs have been broken up, street accidents have been prevented and truancy decreased. Many parents write their grateful thanks for the moral and physical safety of their children and their improvement in health and vigor. Interest in athletics has also been aroused and maintained. Budget Request The Director of Physical Training recommended that $213,200 be allowed for this activity so that 71 new centers could be organized during 1921. The amount finally allowed by the Board of Education was $161,200, which involved an increase of $87,200 over the $74,000 appropriated for 1920. Of the $87,200 increase, $22,200 is required to maintain the activity as at present organized but at the higher rates of salary. 83 Many principals have requested the extension of athletic center service in order that the Welsh Law program of directed recreation may be carried out. While the number of centers requested will not fully meet the general demand, it will be sufficient to meet the more urgent necessities. The loca- tion of centers is determined upon only after careful investigation of school needs. Athletic Competitions For the management of athletic competitions the sum of $7,800 is re- quested. This amount permits the maintenance of the service as in past years without any expansion. It has been demonstrated time and time again that important competi- tions such as interdistrict and interbo rough games of an athletic nature must be supervised and controlled by some responsible person, designated by the proper authority and responsible officially for the proper and orderly conduct of the occasion. Athletic competition for girls is of such a nature as to require the most careful supervision, and proper management of this work depends upon the services provided for in this item. IVhy Is This Work Not Done V oltmtarily by the Teachers? The question is frequently asked, " Why is this work not done volun- tarily by the teachers ?" It must be clearly understood that the $7,800 requested does not begin to provide for the services rendered at athletic competitions. Ordinarily it requires sixty to seventy officials to conduct an athletic meet in a district. The huge bulk of the work in these competitions and in the after school athletics is voluntary service upon the part of the teachers. -It represents over $250,000 in service. Such service being vol- untary, requires stimulation, regulation and supervision. To provide such expert supervision and regulation it is necessary to obtain expert people who can be called upon for continuous service and for this compensation is provided. Such service also includes instruction to the volunteer teachers in the conduct of meets, tournaments and other contests. Expenditures in Previous Years Year Athletic Athletic Totals Centers Competitions 1913 $8,657 00 $8,657 00 1914 $58,111 87 9,485 00 67,596 87 1915 47,041 25 9,432 50 56,473 75 1916 36,607 50 3,585 00 40,192 50 1917 60,292 50 5,825 00 66,117 50 1918 63,312 50 5,694 50 69,007 00 1919 60,418 00 7,180 00 67,598 00 1920 80,755 00* 6,000 00* 86,755 00 *Apportionment. 84 LECTURE BUREAU XVII— EVENING LECTURES AND VISUAL INSTRUCTION Budget Items 1921 Estimate 1920 Apportion- ment Increase Estimate Schedule Number I — Lectures — 1. Lecturers' Fees $40,000 00 22,300 00 10,500 00 19,000 00 16,172 00 $33,600 00 17,321 00 4,200 00 16,700 00 11,048 00 $6,400 00 4,979 00 6,300 00 2,300 00 5,124 00 No. 20-p. 28 No. 60-p. 53 No. 31-p. 43 No. 2-p. 31 No. 2-p. 31 2. Supplies, Equipment, Con- tingencies, etc 3. Janitorial Service 4. Wages- Temporary Em- ployees 5. Salaries — Administrative Staff $107,972 00 $82,869 00 $25,103 00 1 1 — Visual Instruction — 1. Supplies, Equipment, etc... $34,250 00 $27,000 00 $7,250 00 No. 64-p. 54 Evening Lectures — Lecture Bureau Our system of free lectures was organized in 1898 when an appropria- tion of $15,000 was authorized. From that beginning the lecture system under the supervision of Dr. Leipziger developed greatly until it is a recog- nized activity in our city. The larger conception of the function of the school system posits that opportunities for education should be available not only for the youth but also for the adult. The possibilities open to the large class of persons of post-school age have been greatly increased by the leisure that has come to many through the shortening of the hours of labor. The necessity for teaching people to employ profitably their leisure hours is obvious to the most casual observer of our city life. The lecture system has enriched the lives of many. It has had valu- able practical results through the lectures on sanitation, hygiene, cooking. Through the lectures on civics, economics and history false notions of gov- ernment have been displaced by true conceptions of the duties and relation- ship between the citizen and the State. To give a concept of true democ- racy and what it should mean to each individual is the only way to raise the level of citizenship and thus preserve our institutional life. The value of the lecture system as an opportunity for cultural development through the lectures on art, literature and travel has been testified to time and time again by those attending. For 1921 the amount recommended for lectures by the Director was $60,000, which was reduced by the Budget Committee of the Board of Education to $40,000. The amount allowed for 1920 was $33,600, so that the amount requested for 1921 represents an increase of $6,400, or less than 20 per cent. 85 The following data show the amounts appropriated and expended in previous years for lecturers' fees : Year Amount Appropriated Amount Expended 1913 S65,000 65,000 65,000 48,000 50,000 48,000 30,000 33,600 $64,292 86 1914 1915 65,010 27 60,617 91 1916 47,248 83 1917 49,Q60 50 1918 36,210 16 1919 29,294 00 1920 The amount requested will not equal the appropriations in 1918 or prior years. The lecture system is undergoing reorganization under the supervision of the recently appointed Director of Lectures. The scope of the activity is being widened by bringing within its sphere of activity the public day schools. Provision is being made for supplying appropriate lecture service to day elementary and high school groups, teacher groups and parent groups. The type of lectures is being changed so that more attractive and up-to-date lectures will be provided. Under more favorable financial conditions this activity should receive more adequate support if it is to realize its aims. Under the control of the Direcor of Lectures has been placed the work of supplying appropriate material to be used in regular day school activities for visual instruction. The use of lantern and motion pictures as aids to instruction has been recognized but recently but is becoming more and more widespread. An experiment recently conducted by the Lecture Bureau showed that classes taught by means of visual methods obtained superior results in the subject of geography over classes taught by traditional methods. Very fev/ of our schools are equipped with stereopticon or moving picture machines. A number of our schools, recognizing the value of such equipment, have obtained it through funds privately raised or through extra school activities, entertainments, etc. The greater number of the schools, however, have no standard projection equipment. For the purchase of such equipment and for the purchase of slides and the rental of films, etc., an item is included in the estimate for 1921 calling for $34,250, an increase of $7,250 over the $27,000 allowed for 1920. While it is recognized that this amount is quite inadequate as compared with the needs of the system, it marks a beginning. 86 XVIII— GENERAL EDUCATIONAL SUPPLIES' AND EQUIPMENT Fof general educational supplies and equipment for all activities, the sum of $2,602,530.51 is requested. The partial amounts making up this total have been shown under each activity discussed in the foregoing sec- tions of the report. The total amount requested for this purpose is ap- portioned as follows : Day Elementary Schools $2,038,351 17 Day High Schools 377,968 20 Vacation Schools and Playgrounds and Community Centers 124,948 10 Evening Schools 61,263 04 Total $2,602,530 51 The above request is as low as the requirements of furnishing the necessary books, supplies and apparatus permit. The budgets for sup- plies for previous years have been as follows : 1907 '. $1,367,565 00 1908 1,367,565 00 1909 973,000 00 1910 973,000 00 1911 1,112,467 57 1912 1,167,690 13 1913 1,335,752 09 1914.... 1,509,121 62 1915 1,573,020 84 1916 1,510,188 46 1917 1,498,498 11 1918 1,484,518 90 1919 1,484,098 77 Average Amount $1,335,114 34 For 1920 and 1921 the budget requests for this item show an increase over previous years due to the fact that the amounts requested for 1918 and 1919 were not granted. The Bureau of Supplies was obliged in 1918 to cancel orders aggregating $196,000 and although notwithstanding the great increase in prices, the request for 1919 showed no increase over the amount granted for 1918, a cut of $149,000 was made from the request for that year. Had this money, $345,000, been available its purchasing power would have been much greater in 1918 and 1919 than in 1920. Were it not for the foresight of the Board of Education in making contracts for text books in 1914 for five years, the books furnished for the school children during the war period would have cost the Board of Educa- tion more than $1,000,000 extra, because of the increase in prices. The amount requested for 1920 was $1,930,461.37, which represented the minimum requirements of the system. This amount was not allowed. A reduction of $400,000 was made which brought the allowance for the current year below the amount granted for 1915 despite the growth in the r^chool population and despite the rising cost of supplies and equipment. The per capita cost for books and supplies is as follows : Elementary Schools $2 53 per pupil High Schools 5 18 per pupil Vacation Playgrounds 50 per pupil Evening Schools 1 22 per pupil Average 2 26 per pupil 87 XIX— PLANT OPERATION Budget Items Special School Fund 1921 Estimate 1920 Apportion- ment Increase Budget Estimate 1. Janitorial Service 2. Fuel 3. Water 4. Janitorial Supplies and Equipment 5. Purchase and Repairs $3,356,418 46 1,738,548 87 20,000 00 156,471 25 7,600 00 $2,714,770 74 1,347,078 46 15,200 00 128,987 46 7,600 00 $641,647 72 391,470 41 4,800 00 27,483 79 No. 31-p. 43 No. 32-p. 44 No. 33-p. 44 No. 34-p. 44 No. 35-p. 45 Total $5,279,038 58 $4,213,636 66 $1,065,401 92 One of the necessary items of expenditures for which budgetary pro- vision must be made is the operation of the school plant. To visualize the school plant which New York City has already provided to accommodate its rapidly growing school population, one must think of a building, the site of which would occupy over three-quarters of Central Park, the floor space of which would equal one mile and the accommodations of which totaling 825,000 sittings and 18,000 classrooms would seat all the school children of Chicago, Philadelphia, Cleveland, Boston and St. Louis. For the operation of this enormous school plant during 1921 $5,279,- 038.58 is requested, which is 5.74 per cent, of the total amount of the budget estimate. Janitorial Service. — The bulk of the above-mentioned amount is re- quired for janitorial service, for which $3,356,418.46 is requested, involv- ing an increase of $641,647.72 over the amount apportioned for 1920. The increase in this item is due in large part to the increased rates of compensa- tion which went into effect on August 1, 1920. Fuel. — The item for fuel called for $1,738,548.87, which involves an increase of $391,470.41 or 29.1 per cent, over the amount apportioned for 1920. The details of this item are found on page 44 of the budget estimate. The request for 1921 calls for a slight increase in quantity of fuel required for new buildings, the major part of the increase in cost being due to the high prices for coal that are now current. The request for fuel is based upon prices being paid under present contracts. The average price per ton, based upon the purchase of coal on an analysis basis, stevedoring, etc., is $11.83 per ton. Every effort has been made to keep the estimate down to the lowest possible point so that the amount requested is the minimum that will be required. The budget for fuel for 1904 was $584,544. For the succeeding years the budgets were as follows : 1905 $453,387 00 1906 451,864 00 1907 451,094 00 1908 501,800 53 1909 501,800 42 1910 526,880 10 1911 522,130 95 1912 561,939 07 1913 648,687 36 1914 612,132 74 1915 606,812 15 1916 559,516 67 1917 559,217 98 New schools and additions opened during the period between 1905 and 1917 consumed coal costing in the aggregate over $1,700,000. Despite this increase in requirements, the fuel budgets for the years 1905-1917. inclusive, averaged $535,174.07, which in comparison with the amount allowed for 1904 shows a decrease of $49,369.93. In 1918-1919 the cost of fuel was dependent • upon factors beyond the control of the Supplies Bureau. The Bureau^ however, was able to avoid any increase in tonnage burned. Janitorial Supplies and Equipment. — For this purpose $156,471.25 is requested, which is $27,483.79 or 21.3 per cent, above the amount appor- tioned for 1920. The request is based on current prices and the increase is accounted for to a very large extent by the high prices now prevailing for all articles included under this item and upon which the estimate was based. The Superintendent of Supplies states that from present indications such figures will be too low. The custodians of the schools are furnished with probably 200 lines of supplies, including acids, ammonia, brooms, dusters, cleaning cloths, fire tools, rubber hose, ladders, mats, various lines of machinery and cleansing oils, polishes, shovels, rakes, soap, soda, varnish, cotton waste, tools, flags, toilet paper, etc. etc., etc. The amount requested averages a little over $200 per school. New York operates its school plant at a comparatively low cost. As is shown by the comparison of school expenditures in the fifteen largest cities of the country (included in a later section of this report, pp. 104-114), New York, with an expenditure for 1918 of $4.12 per pupil, in average daily attendance ranks lowest in the group for which the average expendi- ture is $6.77. The following diagram. Figure 7, shows the proportion of total school expenditures (exclusive of capital outlay) devoted to the cost of plant operation by the fifteen largest cities in the country. The comparisons are based on data obtained from the United States Bureau of Education. New York in 1918 devoted 6.84 per cent, to this item which was only 59 per cent, as much as the average of the group of cities involved in the com- parison and only 45.5 per cent, as much as Chicago, the city first in rank for this function. Now York does not spend a disproportionate amount of its funds to operate its extensive plant. When the very extensive and intensive use of the school plant entailed in our numerous regular and extension activities is taken into consideration its showing is very creditable. 89 90 XX MAINTENANCE OF SCHOOL PLANT Budget Items Special School Fund 1921 Estimate 1920 Apportion- ment Increase Estimate Schedule Number 1. Salaries and Wages of Inspectors, Draughts- men and Employees . . . 2. General and special repairs, alterations, re- placements and better- ments and classroom equipment in all types of schools $373,512 95 6,455,464 82 $277,577 82 2,659,954 50 $95,935 13 3,795,510 32 No. 2-p. 31 Nos. 36 to 58 Pps. 45 to 53 Totals $6,828,977 77 $2,937,532 32 $3,891,445 45 Maintenance of School Buildings, Repairs and Replacements One of the most important items for which budgetary provision must be made is that for maintenance and repairs of school buildings. We have at present nearly seven hundred buildings used for school purposes, rang- ing from a one-room building to mammoth sized structures such as Wash- ington Irving High School. New York has been putting up school buildings for one hundred years, and our problem always has been to provide accom- modations for our constantly growing school population. Some of our buildings are very old, some represent the last word in school architecture. The accumulated cost of our buildings and equipment amounted, including last year, to over one hundred and twenty-seven million dollars. Sound business principles recognize that it is false economy to allow a plant to deteriorate and to avoid expense by omitting to do necessary repair work. Our school plants, representing an outlay of so much money, should be kept in the highest condition. Our efforts should be directed not only to building new schools but also to bringing our older buildings up to date and to keeping them in a good state of repair. Not only from a consideration of sound business principles but more from a regard for the welfare of the children entrusted to our care must proper provision for this item be made. The sanitary conditions in our buildings should be of the highest order, heating and ventilating apparatus must be brought to a satisfactory degree of efficiency, the lighting facilities should be above criticism, the old school furniture, where necessary, must be replaced, fire risks must be removed, and the other necessary repairs must be made to provide wholesome conditions that will insure the safety, health, comfort and happiness of our children. Another factor to be taken into consideration is the fact that absolutely in no other city of our country are the school plants put to such extensive and constant use as in this city. Our system of extension activities, includ- ing the largest evening school system in the country, community and recrea- tion centers, after school athletic centers, vacation schools, lectures, forums. Errata Slip Figure 8, showing" " Appropriations for Maintenance Repairs and Replacements in Comparison with Accumulated Cost of School Buildings and Equipment," is found on page 95. '91 and the extensive use of school buildings by community groups makes neces- sary the almost continuous operation of most of our school plants. Condi- tions of school congestion in many schools also add considerably to the hard usage of plant and equipment. Table XXIII — Accumulated Cost of School Buildings and Equipment and Amounts Appropriated for Maintenance and Replacements Year Accumulated Cost of Buildings and Equipment Amount Allowed for Maintenance and Replace- ments, etc. Per Cent. of Ac- cumulated Cost Amount Equal to 2% of Accumulated Cost 1904 1905 1906 1907 1908 1909 1910 1911 1912 $55,984,939 47 65,182,013 34 74,182,981 55 84,559,600 08 93,374,180 34 97,887,647 38 100,076,565 24 104,061,750 22 107,627,244 00 111,919,946 41 115,595,866 42 119,599,390 64 121,788,602 77 123,690,089 28 125,489,362 22 127,233,283 19 $1,203,175 00 863,855 00 1,346,805 00 956,806 00 1,528,748 00 1,404,400 54 1,338,423 12 995,641 25 989,694 32 1,067,102 50 1,385,433 38 1,287,255 85 900,100 09 795,201 26 1,000,894 48 926,939 24 2.15 1.32 1.81 1.13 1.64 1.43 1.33 0.96 0.92 0.95 1.19 1.08 0.74 0.64 0.79 0,73 $1,119,698 78 1,303,640 26 1,583,659 62 1,691,192 00 1,867,482 60 1,957,752 94 2,001,531 04 2,081,235 00 2,152,544 88 1913 2,238,398 92 1914 2,311,917 32 1915 2,391,987 80 1916 2,435,772 04 1917 2,473,801 78 1918 1919 1920 2,509,787 24 2,544,665 66 Table XXIII shows the amounts appropriated each year for repairs and replacements in the years 1904 to 1920, inclusive. The table also shows the accumulated cost of our school buildings and equipment and the per cent, of such cost involved in the amounts appropriated for upkeep. It should not cost the Board of Education more to repair its buildings than any private industrial or business concern. On the other hand, should it cost the Board any less? Business concerns and industrial plants thati ? Fubject to no more constant usage than are school plants consider 2 to cent, on the value of the plant as a moderate rate of expenditure for Table XXIII shows for the years 1904 to 1919 what the rate for up- ._un school buildings in New York has been. In 1904 the allowance this purpose amounted to 2.15 per cent, of the accumulated cost. From . on the rate of allowance dwindled irregularly until in 1919 it repre- d but 0.73 of one per cent, of the accumulated cost, i'he table also shows, for comparison, the amoimts that would have equal in each year to 2 per cent, of the accumulated cost. These data -■ - , ^'"'ted graphically in P^igure 8. The horizontal axis shows the accumulated cost of plant. The vertical axis shows the amounts allowed for upkeep. The solid line of the graph shows the amount allowed in rela- tion to the accumulated cost. Distance to the right on the graph means 92 increase in accumulated cost of plant. Distance upward means increase in allowance for upkeep. The broken line in the graph shows the amounts that would have been allowed on the basis of a 2 per cent, rate of appropria- tion. . The heavy line moves steadily to the right, indicating increase in ac- cumulated cost each year; in some years greater than in others. The line, however, does not move steadily upward. It is very irregular, moving up and down. It reaches its highest point in 1908 when about a million and a half was appropriated. From 1908 on the line moves irregularly down- ward, reaching the lowest point in 1918 with an appropriation of $795,000. The broken line indicating a 2 per cent, allowance moves steadily up- ward as it moves toward the right. That is it shows that with an increas- ing cost of plant an increasing allowance should have been granted until in 1919. two million and a half would have been allowed instead of the $926,939 actually appropriated. These data are very significant. They show that for years past New York has not made proper financial provision for the upkeep of its school buildings. While the plant has increased in size and in cost, the amount of rnoney appropriated for upkeep has actually grown smaller and relatively reached, in 1919, a point only about one-third of what it was in 1904. This is in the face of the increasing cost for labor, materials and equipment and also in the face of a rapidly increasing usage of plant and equipment. The estimate submitted includes not only items for foreseen and unfore- seen repairs, but also a number of special items for classroom equipment and alterations, necessitated by the initiation of new or additional activities or by the introduction of new types of school organizations. A determined effort should be made this year, to be continued for some, time to come, to make up for the neglect of previous years. Sound business sense demands that our school plant be kept from deterioration. The inter- ests and welfare of the children make it imperative. 93 XXI— ENLARGEMENT OF SCHOOL PLANT For the erection of new buildings and the acquisition of necessary sites and playgrounds the budget estimate for 192 li includes a request for $46,920,327.80. Explanatory details are found on pages 59-61 of the budget estimate. The above amount is distributed as follows : Buildings Sites Total Elementary Schools High Schools $23,662,933 00 11,500,000 00 2,500,000 00 800,000 00 33,500 00 500,000 00 326,894 80 1,250,000 00 3,500,000 00 $2,025,000 00 535,000 00 $25,687,933 00 12,035,000 00 2,500,000 00 School for the Deaf Pianos and Organs for New Buildings. . 187,000 00 987,000 00 33,500 00 500,000 00 Improvement of Playgrounds (owned) . Supplies Depository New Administration Building 326,894 80 1,250,000 00 100,000 00 3,600,000 00 Totals $44,073,327 80 $2,847,000 00 $46,920,327 80 For a full discussion of the needs of the school system for additional accommodations the reader is referred to the recent report of Superin- tendent Shallow on the "Building Programme of the Board of Education." The rapid expansion and constant growth of the city's population has made it very difficult to provide a " convenient seat for every child." Our obvious difficulty is not only in keeping the number of sittings equal to the number of school children in the city as a whole, but also in providing an adequate number of sittings convenient to the children who must use them. If school sittings could be shifted in any manner approaching the facility with which parents move their belongings, when new transit lines open, there woul'd be no part-time problem, and no attendant financial questions. Over this whole matter of housing and seating pupils New York City was recently in a state of financial breathlessness, like a person who has speeded after a moving automobile, only to find it drawing farther away. Such a person usually slows down, sometimes stops, and wonders if there is not another way of getting to his destination. So New York, a few years ago, hesitated long enough in its building programme to examine and then flatly reject the skillfully exploited Gary plan of duplicate school organiza- tion. Once more we are speeding behind the part-time problem, but with more definite purpose and greater effort. At the present rate of speed there is an excellent chance of overtaking part-time, if we do not collide with some financial obstacle, like the pay-as-you-go policy, which, as its name indicates, is a plan to finance the erection of buildings out of the tax levy, instead of issues of corporate stock. It has recently been proposed, however, to secure by legislation at the special session of the Legislature an amendment to the pay-as-you-go law which would enable the city authorities to pay for school buildings out of corporate stock. If such legislation' is secured the outlook for solving this problem will be more promising. 94 Table XXIV — Special Report on Registration and Part-Time in Day Schools on September 15, 1920, as Compared With Registration and Part-Time on September 9, 1919 Registration Part-Time Seot. 15, 1920 Increase Over Sept. 9, 1919 Sept. 15, 1920 Increase Over Sept. 9, 1919 Elementary 776,111 75,692 1,292 3,018 856,113 '15,562 2,539 40 497 18,638 79,782 6,495 86,277 27,173 High 1,894 Training Vocational Total 29,067 JO 55 60 65 70 75 60 85 90 95 100 105 TiO ilS iZO 125 130 ACCUMULATED COST OP BU\LDINQ5 £vND ErQUIPA^tNTClN AAILUONS) PJQUCLE: e> APPI2.0PI2.l>^TIONS FOR, /AAI/STE:/SA/SC&, BEPAII2,5 A/^D IiE:PLi\CEAAE:m5 1/^ C0/APAR150/M WITH ACCUMUL/JJED COST OP SCrtdOL BUlLDI/^eS A/MD EQUIPMENT IS04.-I9I9 96 XXII— THE PLACE OF EDUCATIONAL EXPENDITURES AMONG THE FINANCIAL REQUIREMENTS OF THE CITY One of the most significant social developments in the last fifty years has been the concentration of people into large urban centers. With the rapid growth of cities there have arisen new social and political problems of a vital character. Of such problems the most fundamental is that of public educa- tion. The organization and administration of a public school system which will provide the children in our cities with adequate educational oppor- tunities, both in kind and in amount, is) a social problem of supreme importance. The development of large cities with its concentration of population, has brought to the fore at the same time many other municipal requirements besides education, such as : the protection of life and property, water supply, sanitation, health, the care of the needy and dependent, building and tene- ment inspection, etc., so that, paralleling the development of large city school systems there has grown up the organization of varied and extended munic- ipal activities to meet the complex requisites of municipal life. One result of the expansion of municipal activity has been the remark- able increase in municipal revenues, expenditures and debts. A secondary result of the extension in scope of modern municipal needs and activities has been the keen competition for financial support to which education is now subjected. In America education has always been considered a social activity, the final control of which was properly a state function. Because of this state control education has tended to become somewhat isolated in the field of municipal activity. To make sure that the schools received their proper share of the municipal funds it has been necessary to protect the schools by statute and within specified limits many of our states, including New York, have given the school system the right to determine the amount of school funds needed and to certify the same to the taxing authority for levy. In New York City, for instance, the Board of Education is allowed funds up to 4.9 mills on every dollar of assessed valuation of real and per- sonal property. Above this amount the Board of Estimate and Apportion- ment has discretion to grant additional funds. With so large a school system as that in New York, growing so rapidly, the present rate of 4.9 mills does not yield sufficient funds to provide the means for maintaining our present activities, without any provision for the very necessary expansion of activ- ities or the initiation of desirable modifications of our educational practice. In the last analysis for financial support the school system is dependent in large part upon the city authorities. While primarily a state concern, educa- tion is none the less a municipal responsibility, for which adequate pro- vision must be made; in fact, education may, with justification, be regarded as a first mortgage upon the city's resources. How Have the Schools Fared in the Competition for Municipal Financial Support It will be of interest to consider how the New York school system has fared in the growing competition for municipal financial support. Table XXV shows for each year from 1902 to 1920 the total tax budget for the city at large, the budget for the Board of Education and the per- centage relation of the budget for the Board of Education to the total tax budget for the city. 97 Table XXV — Proportion of Total City Budget in New York Devoted to Public School Purposes Year Tax Budget for City at Large Tax Budget for Board of Education Per Cent, of Budget for Schools to Tax Budget for City at Large 1902 $98,619,600 88 97,119,031 10 106,674,955 09 109,817,593 03 116,805,490 37 127,421,505 66 140,572,266 17 153,622,701 06 159,130,270 37 163,967,835 16 177,802,899 77 190,411,441 16 190,495,551 62 192,877,694 08 208,956,177 54 206,114,136 82 235,023,759 20 246,190,434 88 272,014,485 13 $23,294,152 05 20,063,017 77 20,913,017 77 21,997,017 77 23,358,188 69 24,915,926 16 26,712,963 59 27,470,736 80 28,578,432 43 29,007,747 14 33,849,819 74 35,206,846 96 38,203,406 92 39,840,349 90 39,865,981 53 41,430,447 49 42,501,156 04 45,121,163 26 49,408,681 12 23.62 1903 20.66 1904 19.61 1905 20.03 1906 19.99 1907 19.55 1908 19.00 1909 1910 17.88 17.96 1911 17.69 1912 19.04 1913 18.48 1914 20.05 1915 20.65 1916 19.08 1917 20.10 1918 18.08 1919 . 18.32 1920 18.16 In 1902 the budget of the Board of Education was $23,294,152.05, out of a total city budget of $98,619,600.88, or 23.62 per cent. For 1920 the Board of Education was allowed $49,408,681.12, out of a total city budget of $272,014,485.13, or 18.16 per cent. The above data are shown graph- ically in Figure 10. From the data presented it appears that the schools are not maintaining their ground in the competition for financial support. In 1902, out of every $1,000 of taxation, the school budget obtained $236. In 1920 the schools' share was $181, out of every $1,000, a relative reduction of $55. These figures are for single years. The same condition is shown when the averages for a period of years are compared. The average share of the total city budget appropriated for the public schools during the five years, 1902-1906. was 20.78 per cent., while for the last five years, 1916-1920, the average per cent, was 18.75, a reduction of 2 per cent. It is realized that the total budget for the city contains provision for interest on the city debt and also for its redemption and that the schools share in the debt. It is also to be noted that the figures for the school budget do not contain that part of the debt service which was entailed because of the obligations incurred for school purposes. Accordingly, while it is con- ■nGURE-9- MILUONS •ANNUAL- SCHOOL- BUDGET- IN -COMPARISON -WITH -TOTAL- CHY- BUDGET 1902- 1920. ^*' • EACH- RECTANGte • REPRESENTS THE'TOTAU- CATi Bl)OG£T •THAT-PART- 0FTHERECTAN<31£ • FROM THE -BASt TO THEBHOKEN. LINE- -REPRESENTS THE- TOTAL- et JY • BUPGET LESS- DEBT" SERVIciE. ■THE • SOLID PART Of EACH- RECTANfiLE • REPRESENTS THE- SCHOOL- BUDGET' tea z6o 260 240 z*e 220 220 200 too I 180 189 ISO leo ,-... 140 <40 120 [to 100 lOO 80 ... 80 so ~~ 60 40 d ■ 40 20 ■ 20 ■■■ ^^^^l^^^^^^^l (902 '03. '04 '05. ' 06. ' 07. 08 "09. '10 11. 'l2. '13. '14. '(5. *I6. " XT- ' \6. 'I9. "20. 99 FIGURE-ID- •PROPORTIONOF-TOTAL- CITY- BUDGET- DEVOTEO-TO- SCHOOL- PURPOSES- • I902- I920 • pen CENT 1 100 . . 1 90 80 70 60 50 40 30 20 - 10 h 1 II II 1 1 1 1 1 II II 1 1 1 minimimni 1902, 'Oi. '04. '05. '06. '07 'Oa '09. '10. 'II. '12. '13. '14. '15. '16. '17. '18. '19. '2a •SHADED • PART- REPRESENTS- SCHOOL - BUDaET- 100 sidered valid to determine how much of the whole tax budget is devoted to current school purposes and to regard the debt service as one of the munic- ipal requirements with which the schools have to compete, it has been thought desirable to supplement Table XXV by Table XXVI. Table XXVI shows the city tax budget after the item for debt service has been deducted, in comparison with the school budget. Table XXVI — Proportion of City Budget Less Debt Service Devoted to Public School Purposes. Year Tax Budget for City at Large Exclusive of Debt Service Budget for Board of Education Percent Budget of Board of Education is of Total Budget for City, Exclusive of Debt Service 1902 1903 1904 1905 1906 1907 1908 -. 1909 $75,487,329 87 73,424,962 25 76,963,665 05 80,550,898 30 85,689,283 16 92,163,050 29 100,117,493 31 106,399,622 73 112,684,574 65 113,306,013 17 126,548,361 60 135,434,059 82 137,884,033 97 133,045,313 04 145,742,967 43 136,369,567 87 159,433,299 18 168,258,496 78 197,172,946 47 $23,294,152 05 20,063,017 77 20,913,017 77 21,997,017 77 23,358,188 69 24,915,928 16 26,712,963 59 27,470,736 80 28,578,432 43 29,007,747 14 33,849,819 74 35,206,846 96 38,203,406 92 39,840,349 90 39,865,981 53 41,430,447 49 42,501,156 04 45,121,163 26 49,408,681 12 30.81 27.32 27.17 27.31 27.26 25.95 26.68 25.81 1910 25.36 1911 1912 ' 1913 25.61 26.75 26.00 1914 1915 27.71 29.94 1916 27.35 1917 30.38 1918 26.66 1919 26.81 1920 25.06 Relatively the same trend is shown by the above figures as by the data of Table XXV. In 1902 out of the total city budget (less debt service) of $75,487,329.87 the school's share was 30.81 per cent., while in 1920 the school's proportion was 25.06 per cent. In other words, out of every $1,000 of taxation the schools obtained $308 in 1902 as compared with $251 in 1920, or $57 less per $1,000 of taxes. HOW NtV/ YOC.K5PE/^T IT3 SC»^OOL DOLLAR DUBIMG SCHOOL YtAE. 1918-1919 102 XXIII— HOW NEW YORK SPENT ITS SCHOOL DOLLAR FOR THE 1919 SCHOOL YEAR For the school year ending July 31, 1919, the expenditures for school purposes by the Board of Education totaled $48,175,407.38. The following table shows the particular items that made up this total and also the per cent, of the total that was devoted to each. The diagram shows how much out of each dollar expended was spent for the various items. The largest item was that for instruction in day schools, for which 76.92 per cent, of the total was expended. Out of every dollar spent 73.5 cents went to pay for salaries of teachers and principals in day schools. For text-books 1.44 cents and for supplies 1.97 cents were spent out of every dollar. On evening schools there were spent but 1.84 cents on the dollar. On our other extension activities and auxiliary agencies, including some minor miscellaneous items only 1.91 cents were spent. Many persons have the notion that a goodly part of our funds go to these " extra " activities. The table and figure show that by far the greater part of our expenditures is devoted to day school activities. Table XXYU— Expenditures for the School Year 1918-1919 Purpose Amount Percent I. Expenses of General Control- — • 1 Business administration $579,756 97 672,230 46 499,009 29 1.20 2. Educational administration 3. Enforcement of Compulsory Edu- cation, Truancy Laws and Census Enumeration 1.39 1.03 Total $1,750,996 72 3.63 II. Expenses of Instruction, Day Schools — 1. Salaries of Principals,Teachers, et al 2. Textbooks $35,414,517 51 696,430 56 949,401 24 73.50 1.44 3 Supplies, etc 1.97 Total $37,060,349 31 76.92 III. Expenses of Instruction , EveningSchools — 1. Salaries of principals, teachers, et al. 2. Textbooks $849,905 89 10,538 27 29,580 91 1.75 0.02 3. Supplies, etc 0.06 Total $890,025 07 1.84 103 f Purpose Amount Percent. IV. Operation of School Plant — 1. Wages of Janitors and other em- ployees $2,048,525 15 1,037,608 73 15,191 75 94,228 13 4.28 2. Fuel 2.15 3. Water 0.01 4 Janitors' Supplies 0.19 Total $3,195,553 76 6.63 V. Maintenance of School Plant — 1 Repair of Buildings $228,699 53 1,116,829 59 215,621 72 37,940 95 0.47 2. Repair of Heating, Lighting and Plumbing Kquipment 2.32 3. Repair and Replacements of Furni- ture 0.44 4. Other expenses 0.08 Total $1,599,091 79 3.32 VI. Expenses of Auxiliary Agencies and Sundry Activities — 1. Libraries $36,730 49 202,653 13 5,420 65 5,799 74 89,281 04 45,970 72 233,824 21 200,572 50 0.07 2. Transportation of Pupils 0.42 3. Care of Children in Institutions. . . . 4. Lunches 0.01 0.01 5. Lectures 0.19 6. Social Centers 0.10 7. Other expenses 0.48 8. Payments to Corporate Schools. . . . 0.41 Total $820,252 48 1.70 VII. Expenses of Fixed Charges — 1. Pensions $3,791 80 98,594 40 2. Rent Total $102,386 20 0.21 VIII. Capital Outlay — 1. Land $388,289 61 2,368,362 44 2. New Buildings Total $2,756,652 05 .5.72 Grand Total $48,175,407 38 99.97 104 XXIV— HOW DO THE SCHOOL EXPENDITURES IN NEW YORK COMPARE WITH THOSE IN OTHER CITIES? Data as to the school expenditures of each city in the United States are submitted annually to the United States Commissioner of Education and are published in tables in the biennial reports of the United States Bureau of Education. They afford the only readily available means of comparing the school system of one city with those in other cities of the country. Such comparisons, while subject to certain limitations which must be taken into account, yet afford a means for judging how close one system is approaching another in educational efforts and in educational achievements. In the following analysis of school expenditures in New York City comparison was made with those of the fourteen next largest cities. The data used were obtained from the United States Bureau of Education. Such data relate to the school year 1917-1918. As the Bureau of Education publishes statistics every two years instead of annually, data for the year 1918-1919 are not available and data for 1919-20, the last school year, have not as yet been submitted. The data used herein were obtained in advance of publication through the courtesy of H. R. Bonner, of the United States Bureau, who is about to publish a study of school expenditures in 45 cities of the United States having a population of 100.000 or over, according to the census of 1910. In making any comparison of the school system of New York City with that of other cities in the country one must constantly bear in mind that New York, because of its enormously large population, the immense size of its school system, its geographical location, and its industrial condi- tions is really in a class by itself. At the same time, in a general way, the problems of educational administration in all of the larger cities are quite similar in character, although varying in scope or degree so that certain comparisons may be made with profit. The analysis undertaken herein is intended to show how much New York City spends per pupil upon the main items of current school opera- tion and to compare such per capita costs with those in the 14 next largest cities. The main objects of expenditure may be grouped as they are grouped in our budget into the following classes : 1. General control. 2. Instruction. , 3. Operation of school plant. 4. Maintenance of school plant. 5. Auxiliary agencies. 6. Fixed changes, etc. The expenditures for capital outlays, new school buildings and sites and betterments have not been included. The expenditures for evening schools have also been excluded. To secure a basis for comparison the total ex- penditure for each class of items has been divided by the total average daily attendance in day schools. Figue 12 shows the total expenditure per pupil in average daily attendance for current operation in fifteen cities arranged according to rank. The first city, Los Angeles, spends $74.25 per pupil. The second, Cincin- 105 s s ;il O 3 o Si 4 4 a. S 1 ^ S O. S « •y c: © o ai o» o — Ed Q ^ ID < X Z^Z <2 ^oz QZO (XZW ZmZ Si" OOai - u Q.UT oo rt r-( O 00 g a; 2 bjO -rt S-H V (fi > OS a; ^ 3 W en r-l ©^ ^ >^ c3 i-H S-. Tl (,i rf) (-1 -t-J Md 03 ■0 rn rt > a; O. >^ : "O. « "1 <. ^ 11 < :i lU 4. 4. O -• O 9 »u _j > o ,1 ■> < |J_ H- > :^ u- in ■" £ 3 - ■4 O 2 lU 9 ^ fi WXtZI 2UJO^ 0^ D H 1—4 Q 2 ui cu X 109 nati, spends $64.79 per pupil, and so on down to the fifteenth, which is Baltimore, with an expenditure of $38.28. The average of the fifteen cities is $57.25. How much should be expended per pupil has never been scientifically determined. There is no available standard norm with which to compare the per pupil expenditure of any city. It is imposible to say therefore that the expenditure of Los Angeles, which ranks first, is too high or indicative of extravagance. In the absence of a standard the average expenditure of a group of cities must serve as a substitute. New York with an expenditure per pupil of $59.06 is seventh in rank. Its expenditure per pupil is slightly above the average for the group of fifteen cities, and is exceeded by six other cities. It spent about 80 per cent, as much as Los Angeles, the highest, and about 150 per cent, as much as Baltimore, the lowest ranking city. The diagrams that follow show how New York ranks in camparison with the other cities in the group in per pupil expenditure for the different items that make up the total expense for current operation. It is to be noted that in the major item of instruction New York ranks second with an expenditure which is 114 per cent, of the average. Cor- respondingly New York ranks low in the minor items such as plant main- tenance where it is twelfth in rank with an expenditure of only 60 per cent, of the average, and in plant operation where it ranks last with an expenditure again of only 60 per cent, of the average. In auxiliary agencies and in gen- eral control its expenditures are average. Figure 20 shows for the various items of expenditure under con- sideration the per cent, of deviation above or below the average for the highest ranking and the lowest ranking city in each case respectively and for New York. It would appear that the expenditures incurred by New York are nor- mal as far as a group comparison may serve as a standard and that the emphasis is on the proper item, namely, instruction. 110 FK3UB.E-16. EXPENDITURE PER, PUPIL IN AVERAGE DAILY ATTENDANCE FOR SUPPLIES ETC. FOR IHSTRUCTION IN FIFTEEN CITIES FOR. -1918- CITV AMOUNT %\. $2. $3 1. CINCINNATI. 2. LOS ANGELES. 3. PITTSBURG. 4- BOSTON. 5. NEWARK. 6. 5T.LOUIS. 7. CLEVELAND. 8. MILWAUKEE. 9. PHILADELPHIA. 10. NEV/ fORK. H. BUFFALO, le. DETROIT. IX CHICAGO. H. SAN FRANCISCO. 15. BALTIMORE. 3.25 ■^^■H^BHI m i.zo ^^^B^H^^HH t.or ■■■i^rii t.04 I^I^HHH t.oo m^i^^i .77 §■■■ .55 HH 1 AVERAGE. ] DOES NEW/ YORK SPEND TOO MUCH ?EP. PUPIL FOR. INSTRUCTION SUPPLIES ? IT RANKED TENTH IN 1918 WITH AN EXPENDITURE pER. pUpIL OF $L20 WHICH WAS 73 9i OF THE AVERAGE E>i;pENDITURE OF THIS GROUP OF CITIES AND 379^ AS MUCH AS THE AMOUNT EXPENDED BY LOS ANGELES FOR. THIS puRpOSE. O o < 1 oq ®. in ir> ••t cfy cu d o *3 N; "*t "'^ —. " — : lU lU 5 ^^ ^ ^^ U . o In — _l -J 0^ ssg^ a Oi a lU ci : r ^ «i- o S C^ O lU a lU a t lU a X lU 112 s =« =>» % 1 4 III. ^ Illlllll i 5 . . - — in K i£j o «. (T oo CO «0 t< ^ ^- J? vo-o'H CdJ^i co!-2>Z~' > Z CO nZ^nO tup^Zi^ n UOZ) 9q>u5: ■5ZIW hW^<,Sz zQ^jS "Zggx z^Q^° y£/PAGs jrr£M / /eo % so % so % /bo % rar/ti. casr. J SfNJ. CMTKOl 4 i -V % /U^r/H/CTioN * '\ \ \ \ ^ ^ 4 / / \ \ P/Afrra/v/ntTtoM (,.17 \ \ 1 y /^ y t. / \ \ \ \ \ \ LIBRARY OF CONGRESS 021 321 467 6