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The Superintendent of Schools
* and His Work
2 ” O 5
. A 5 /.2
American Association of School Administrators
A Department of the
National Education Association of the United States
The Superintendent of Schools
and His Work
Final Report of the Committee on
Certification of Superintendents of Schools
Copyright, February 1940
AMERICAN ASSOCIATION OF SCHOOL ADMINISTRATORS
A DEPARTMENT OF THE
NATIONAL EDUCATION ASSOCIATION OF THE UNITED STATES
1201 Sixteenth Street, N. W., Washington, D. C.
Price 25 cents
Education
~
-
A £ CONTENTS
PAGE
FOREWORD . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
INTRODUCTION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
I. WHAT IS THE SUPERINTENDENT OF SCHOOLs LIKE? . . . . . 7
II. WHAT ARE THE RELATIONSHIPs of THE SUPERINTENDENT
OF SCHOOLS AND THE BOARD OF EDUCATION? . . . . . . . . 10
III. How DOES THE SUPERINTENDENT OF SCHOOLS AFFECT
THE INSTRUCTIONAL PROGRAM? . . . . . . . . . . . . . . . . . . . . 18
IV. WHAT IS THE ROLE of THE SUPERINTENDENT OF SCHOOLs
IN PERSONNEL MANAGEMENTP . . . . . . . . . . . . . . . . . . . . 24
V. How DOES THE SUPERINTENDENT OF SCHOOLS DEAL
WITH FINANCIAL PROBLEMSP. . . . . . . . . . . . . . . . . . . . . 29
VI. How CAN THE SUPERINTENDENT OF SCHOOLS IMPROVE
THE PUBLIC RELATIONS PROGRAM? . . . . . . . . . . . . . . . . . 33
VII. WHAT KIND OF SUPERINTENDENT OF SCHOOLS IS WANTED
By LAYMEN AND SCHOOL EMPLOYEEs? . . . . . . . . . . . . . . 36
GENERALIZATIONS FROM THE STUDY. . . . . . . . . . . . . . . . . . . . . . 40
CONCLUSIONS AND RECOMMENDATIONS OF THE COMMITTEE . . . 45
COMMITTEE ON CERTIFICATION OF
SUPERINTENDENTS OF SCHOOLS
OTTO W. HAISLEY, Superintendent of Schools, Ann Arbor, Michigan,
Chairman -
FRANK W. BALLOU, Superintendent of Schools, Washington, D. C.
FRANK CODy, Superintendent of Schools, Detroit, Michigan
W. KARL HoPKINS, Superintendent of Schools, Ogden, Utah
CARROLL R. REED, Superintendent of Schools, Minneapolis, Min-
neSOta. -
Joseph H. SAUNDERs, Superintendent of Schools, Newport News,
Virginia
GEORGE D. STRAYER, Teachers College, Columbia University, New
York
[ 2 |
SC++. OF Epiſc.
Li BFAF&Y OF
A. B. MOEHLMAN
6-29-4C) FOREWORD
HE PRESENT SURVEY is the final report of the Committee
on Certification of Superintendents of Schools. Authorized at
the 1937 convention of the American Association of School
Administrators, the Committee held its first meeting in the spring
of 1938. At that time it was agreed that the Research Division of the
National Education Association should be asked to supervise two
studies: (a) a summary of statutory and other standards for the
position of superintendent of schools, and (b) a field study of super-
intendents of Schools to discover factors associated with their success.
The first study was issued in February 1939 under the title Stand-
ards for Superintendents of Schools. It was a report of 63 pages and
Several extensive tabulations. Information was given as to the legis-
lative prescriptions affecting the office of superintendent of schools,
State Certification requirements, special training programs offered by
collegiate institutions, codes of ethics, and expert opinion as to the
function of the superintendent of schools.
The present report summarizes case studies of twenty-six superin-
tendents of schools selected from communities ranging from 4000 to
200,000 in population. While there was an attempt made to select
successful superintendents, there has been no deliberate effort to
include in this report either the best or the worst examples of school
administrative organization or procedures. The study presents illus-
trations of typical situations in which superintendents are at work.
Beginning with the introduction and ending with the summary, the
report includes the objective evidence secured by the investigator,
under the plan worked out by the Committee, and his interpretations
of the material and evidence collected.
The final section, conclusions and recommendations of the Com-
mittee, presents the general point of view of the Committee on Cer-
tification of Superintendents of Schools. It is an extension of the
tentative recommendations presented in the 1939 report.
The Committee is indebted to the twenty-six superintendents as
well as to the hundreds of teachers, laymen, and students who made
this study possible. It acknowledges the careful work of the investi-
gator, Lawrence E. Vredevoogd, who handled his assignment with
skill and tact. Frank W. Hubbard, associate director of the Research
Division of the National Education Association, aided greatly with
timely suggestions. OTTo W. HAISLEy, Chairman.
[ 3 ]
INTRODUCTION
HE 1933 YEARBOOK of the Department of Superintendence
of the National Education Association reported a questionnaire
survey of both city and county superintendents of schools." The
study revealed the status of the individuals who occupied 2270 city
and 1199 rural superintendencies. These individuals suggested certain
standards of procedure and organization for successful school ad-
ministration. The results of the study were not checked by any case
studies to determine how they compared with actual practice in the
field.
At the April 1938 meeting of the Committee on Certification of
Superintendents of Schools, provision was made for a series of case
studies of representative superintendents. The Committee was pri-
marily interested in discovering the personal and professional quali-
fications of successful superintendents and the procedures used by
them in fulfilling various legal and professional responsibilities.
The investigator visited each community to collect data as to
personal background, professional training, personal traits, interests,
and general experience of the superintendent. An analysis was made
of the relationships of the Superintendent to accrediting agencies,
state law, local law, boards of education, and of the methods em-
ployed in various areas of school administration.
Twenty-six Superintendents were selected from communities of
1000 to 200,000 inhabitants. Among the types of cities represented
were the highly industrialized, the wholly rural, and the restricted
residential. Some of these communities were part of a metropolitan
area and others were located some distance from congested centers.
The selection was further limited to those superintendents who had
had a sufficiently long period of service to make such a survey pos-
sible and to those who were recognized by their associates and fellow
superintendents as successful in their present positions.
The final selection included communities in which there were
religious difficulties, problems of organized labor, varying conditions
with regard to boards of education (e.g., politically elected boards,
high-salaried board members), and differing practices in the executive
authority of the superintendent (e.g., single and multiple executive
plans). In short, the communities were representative of the many
1 National Education Association, Department of Superintendence. Educational Leadership; Progress
and Possibilities. Eleventh Yearbook. Washington, D. C.: the Department, 1933. Chapters VI and IX.
[4 |
social and economic conditions which superintendents of schools are
called upon to meet.
After the superintendent had expressed a willingness to cooperate,
a time was selected for the work in his community. A preliminary
study was made of the economic, religious, Social, and political pat-
terns of the community. The superintendent was interviewed as to
his official status, organization of the board, and his methods of opera-
tion in the various areas of administration.
Representative people of the community were then selected so as
to include the most important social, political, economic, religious,
and professional groups. Board members and representative school
employees also were included. The purpose of these interviews was
to check on previous findings as well as to determine further how
the superintendent operated and which of his methods were most
effective.
The number interviewed in each place depended upon the size of
the community and the stability of the situation. Wherever there was
any evidence of a group who might help complete the whole picture
of the superintendency, representatives were selected for consulta-
tion. In all communities contacts were made with representatives of
parent-teacher associations, teachers clubs, labor organizations or
master craftsmen, janitors, board members, the administrative staff,
and clerical assistants to the superintendent. The determination of
those to be interviewed was made by the field worker to insure that
all groups would be adequately represented. The superintendent did
not have advance notice as to who the interviewees would be or how
the selection would be made.
Printed records, speeches, courses of study, bulletins, articles, and
other available materials were used in discovering or verifying data.
After the study of each case had been summarized for this report,
certain conclusions which revealed wide differences between the
written facts and those collected thru interviews were sent to the
superintendent for interpretation.
The self-rating scale on the collective aspects of the superintend-
ent’s leadership which was published in the 1933 yearbook of the
Department of Superintendence was used as a checklist in the inter-
views. This checklist was one of the instruments used to appraise the
methods of operation.
The present summary is based upon 503 personal interviews in
twenty-six communities. There were more than this number of indi-
[ 5 J
viduals interviewed, but some of the interviews were incomplete or
otherwise unsatisfactory for use. The 503 persons are grouped as
follows for the purposes of this study:
1.
Professional lay—48
Doctors, dentists, lawyers, and clergy.
. Semiprofessional lay—82
Engineers, bankers, and business executives who were either owners or
managers of the businesses they represented.
. School employees—175
All those on the payroll of the school and whose chief occupation was
their School position, such as administrators or principals, assistant superin-
tendents, business managers, classroom teachers, supervisors, and janitors.
. Laborers—29
Those engaged in industry or craftsmanship.
. Unclassified—64
Such nonschool workers as tellers, salesmen, farmers, and bookkeepers.
. City managers or mayors—10
Included because of their direct relationship to the school administration.
. Lay women—61
Parent-teacher association presidents, club women, and housewives.
. Students—34
Interviewed because of the Superintendent’s work with them.
In all interviews the individuals involved were assured that their
answers would be compiled with the other case studies and that no
name or identifying references would be used in this report. The
bibliography and identifying references have been carefully removed
to protect all those who cooperated.
| 6 ||
I. WHAT IS THE SUPERINTENDENT OF SCHOOLS
LIKE?
HOSE WHO WISH TO COMPARE the information in this section
with state standards are referred to the earlier report of the
Committee, Standards for Superintendents of Schools.”
Preparation and Experience
The twenty-six superintendents represented a wide range of edu-
cational training and experience. All had taken graduate courses in
education after they entered the administrative field. Sixteen of those
studied had majored in and planned for education as a life’s voca-
tion. Six had majored in fields other than education, such as political
science, industrial arts, science, mathematics, and law. Two of the
twenty-six had been in accountancy and auditing fields before enter-
ing educational work. One superintendent had left farming and re-
turned to college work to prepare for teaching. One of the group
had prepared for the medical profession and entered education for
temporary employment. He was soon promoted to the superintend-
ency, supplemented his previous work with graduate courses, and
remained in school administration.
All twenty-six stated that because of other demands of their pres-
ent positions, they were unable to continue graduate study and had
to rely upon professional reading, round-table conferences, and
similar group gatherings to keep informed and alert to changes in
education. Twenty-five had the master’s degree. Three had com-
pleted courses presented in professional Schools for the doctor’s
degree. The field courses and graduate conferences of colleges and
universities were stressed as definite aids to those at work in the
field. All twenty-six superintendents referred to the services of the
national, state, and university associations (e.g., Schoolmaster clubs
and superintendents’ round tables) which recognized the need for
in-service training for their members.
1 American Association of School Administrators, a department of the National Education Association.
Standards for Superintendents of Schools. Washington, D. C.: the Association, 1939. 64 p. 50%.
[ 7 |
In Selecting a superintendent, the board members interviewed
(135) believed that the master's degree with graduate courses in
education would be satisfactory, but twenty-seven of the 135 said
that they would prefer a man with a doctor’s degree if the other
qualifications were equal. In every community, board members em-
phasized the importance of administrative conferences and conven-
tions for the superintendent and the teaching staff. Twenty school
systems provided travel expense accounts to insure that their super-
intendents would attend such meetings. Twelve school systems pro-
vided travel allowances for board members to attend educational
conferences. Fourteen made provision for staff members and board
members to attend national, state, and regional meetings.
Cultural and Professional Contacts
All twenty-six superintendents stated that they were unable to
find as much time as they desired to read books which they knew
would be helpful and desirable. Twenty emphasized newspapers,
magazines, radio programs, and motion pictures as sources used to
keep informed.
Most of the superintendents expressed the belief that there had
been a decided improvement of professional magazines in organiz-
ing and preparing materials so that they and other members of the
teaching staff could keep informed with regard to the trends and
experiments in education. The professional magazines mentioned
most frequently by the Superintendents interviewed were as follows:
Journal of the National Education Association, American School
Board Journal, Nation's Schools, School Executive, School and
Society, and the state teachers association journal. These Superin-
tendents also referred to the Research Bulletin of the National
Education Association, reports of the Educational Policies Commis-
sion, and publications of various committees.
Membership in Community Organizations
Twenty superintendents were members of the chamber of com-
merce or board of trade, a service club, and a fraternal organization.
Twelve took active part in church activities such as Sunday school
classes, church boards, or societies. Two had memberships only in
luncheon service clubs. Three belonged to one of the service clubs
[8]
and to a fraternal organization. One Superintendent did not belong
to any church or civic organization. Twenty-four superintendents
were members of a church.
Membership in Professional Groups
All of the superintendents were members of their respective state
associations, the American Association of School Administrators, and
the National Education Association. Twelve belonged to regional
organizations of superintendents; two were members of the Ameri-
can Educational Research Association; and two were members of
the Progressive Education Association.
Recreation
Reading was one form of recreation enjoyed by twenty-three
superintendents. Nineteen were interested in golf, twelve in fishing,
and nine in hunting as pastimes. Two spent most of their outdoor
leisure time in gardening; two took an active part in musical groups
and music recitals. Sixteen played bridge or cards because of their
social obligations, but only eight found card playing a real enjoy-
ment. Twenty-one superintendents did not believe that they or their
associates had enough recreation. They considered this an essential
but neglected part of the lives of most Superintendents.
[ 9 |
II. WHAT ARE THE RELATIONSHIPS OF THE SUPER-
INTENDENT OF SCHOOLS AND THE
BOARD OF EDUCATION?
WENTY-FIVE OF THE TWENTY-SIX SUPERINTENDENTS inter-
viewed stated that they were recognized by their boards as the
chief executive of the board of education. The case studies
revealed that nineteen of the twenty-five did have the executive
powers delegated to them and were regarded as the chief executive
by the staff members, board members, and laymen interviewed. On
paper, nine of the twenty-six cities were under dual executive types
of administration, but two of these were operating on the single
executive type of organization. Seven superintendents were delegated
only part of the administration of the schools and were one of two
or three executives directly appointed and controlled by the board.
Five boards of these seven had delegated the administration of the
business and financial activities of the school system to an executive
independent of the superintendent. Two of the seven boards had
delegated to a third executive the bookkeeping and accounting activi-
ties. In all of the seven systems, the division of powers included the
direction and control of certain employees.
One superintendent did not consider himself the chief executive
of the schoolboard and the case study substantiated this. He was not
invited to attend all board meetings but, when needed, was consulted
on matters of instruction. The school employees in this system looked
upon the board members from their wards for Security and salary
increases. Finance, the management of buildings and grounds, and
business matters were delegated to other executives. The community
has since revised its methods of election of Schoolboard members, and
the above condition is now in the process of change toward a single
executive type.
Type of Administration Preferred by Those Interviewed
The single executive type of school administration (all activities
under the direct control of the superintendent) was preferred by a
[ 10 |
majority of those interviewed. The responses within the different
groups are as follows:
Number preferring
Single Dual Number
Group executive executive undecided Total
Professional lay . . . . . . . . . . . . . 46 2 - - 48
Semiprofessional lay . . . . . . . . . 72 10 - - 82
School employees . . . . . . . . . . . 159 16 - - 175
Women lay groups. . . . . . . . . . . 31 19 11 61
Mayors and city managers . . . . 8 2 - - 10
Unclassified laymen . . . . . . . . . 33 23 8 64
Labor representatives . . . . . . . . 9 16 4 29
Students (not questioned) . . . . . . . . - - - - 34
Further analysis reveals that the labor representatives interviewed
did not favor the single executive type of administration. They ob-
jected to “the centralization of too much power” in the hands of one
executive. The four individuals in the labor group who were “un-
decided” gave evidence of leaning toward a dual executive type. The
labor representatives were critical of the power invested in the super-
intendent with regard to selection, retention, and promotion of per-
sonnel. Tenure laws, salary schedules, and more democratic adminis-
tration of the school system were mentioned by these representatives
as essentials under the single executive type.
It is interesting to examine the distribution of opinions among
school employees. The 175 persons interviewed in the twenty-six
school systems were grouped as follows:
Administrators
Principals, assistant superintendents, business managers, etc. . . . . . 104
Classroom teachers
Presidents and officers of teachers clubs and unions
Labor
Janitors and domestic help . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 33
Their responses to the inquiry about the type of administration
they believed would be most beneficial to the public schools were:
Number preferring
Single Dual Number
Group executive executive undecided Total
Administrators . . . . . . . . . . . . . . 89 15 - - 104
Classroom teachers . . . . . . . . . . 30 8 - - 38
Janitors and domestic help . . . . 10 18 5 33
[ 11 J
Those who supported the single executive type, as well as the
others, were emphatic in demanding protection from political man-
agement of the Schools. They thought that the protection could be
provided thru the adoption of tenure laws, salary schedules, sick
leaves, and retirement provisions.
The twenty-three administrators and classroom teachers who
favored the dual executive type did so because they did not have
confidence in the business ability of most superintendents. Six of
these twenty-three were business managers with direct responsibility
to the board. Two were superintendents of buildings and grounds.
Eleven were supervisors and assistant superintendents and four were
principals. The twenty-eight janitors and domestic helpers reflected
the attitude of the labor representatives. It should be noted that ten
of the eighteen who favored the dual executive type were under that
form of administration in their present position.
Organization of the Board of Education
The twenty-six boards of education varied in size from three to
twenty-one members. Ten were composed of five members, six of
seven members, three of six members, three of three members, one
of nine members, one of fourteen members, one of eighteen members,
and one of twenty-one members. Twenty-one boards were elected,
eighteen by the cities at large and three by wards. Five were
appointed by the mayor.
There was a wide range of difference in respect to the remuneration
for the services of the board members. The members of eighteen
boards served without pay. Of the other boards the members of one
received $1200 a year; two, $150; one, $100; two, $50; and two, $2
a meeting. In the communities in which board members served with-
out pay, the position was one of honor and respect. As a result, a
high type of citizen was willing to serve on the board. Twenty-seven
members serving on such boards stated that they had refused to
serve on other boards, but considered the Schoolboard membership an
honor and a civic duty. In the community paying $1200 a year, pro-
fessional men stated that they did not desire to enter politics and
refused to run against candidates who Sought the positions because
of the remuneration involved. Two of the present board members
in that community admitted that they spent more than $200 for
their campaigns. Ninety-seven of the total of 135 board members
[12]
interviewed believed that board members should not be paid for their
services. Nineteen of these ninety-seven were at present receiving
some remuneration as board members. Six of the ninety-seven re-
fused to take their allotment or gave it to some school fund.
Twenty boards of education had written provisions for the organ-
ization of standing committees. The number of these permanent com-
mittees ranged from three to five, with fifteen of the twenty school
systems providing for the appointment of three committees. The
three committees were assigned the areas of finance, personnel, and
buildings and grounds. Eleven of the twenty boards, organized by
board rules as three committees, were functioning as a committee of
the whole. The president of the board failed to appoint the committees
and, as a result, they were forgotten. The board members interviewed
in these cities explained that committees were not appointed because
they did not function and were considered unnecessary.
In response to the question, “What type of organization of the
board of education do you believe most efficient and beneficial to the
schools?” seventy-four selected the committee of the whole as the
better type and forty-one recommended the standing committee sys-
tem. Thirty-one of the forty-one choosing the standing committee
system were serving on boards organized on this basis. Twenty-one
of the seventy-four who preferred the committee of the whole repre-
sented boards which were organized with standing committees. Seven
of the twenty-six boards of education had alternated from one plan
to the other.
In reply to the question, “What or who do you think determines
the type of organization of the board?” the 135 board members and
twenty-six superintendents gave the following answers, which are
ranked in the order of the frequency with which they were given:
Number of Number of
Determining factor board members superintendents
Superintendent . . . . . . . . . . . . . . . . . . . . . 49 13
Personnel and size of the board and
type of members . . . . . . . . . . . . . . . . . 34 6
Combination of factors . . . . . . . . . . . . . . 27 5
Board policies and rules. . . . . . . . . . . . . 16 1
Undecided . . . . . . . . . . . . . . . . . . . . . . . . . 9 1
One hundred and seventeen of the school employees interviewed
injected into their discussion of qualifications for the superintendency
a need for standards of qualifications for board membership. Two
[ 13 T
hundred and four of the laymen interviewed also emphasized this as
a means of improving school administration. Sixty-three of the 204
were board members. Six of the twenty-six boards attempted to meet
this need by selecting candidates whom they considered qualified for
board membership. Two of the six used the plan of resignation and
appointment in their attempt to insure a high type of membership.
This plan requires the resignation of the retiring member one year
in advance of the expiration of his term, the selection by the board
of a person whose ability, character, and integrity are respected by
the community, and at the end of the year the candidacy of the
appointee for re-election. The candidate then has the advantage of
a year’s experience on the board. In these two communities this plan
has failed only once. Upon investigation it was learned that the fail-
ure was attributed to the poor selection of the appointee by the board.
Meetings of the Board of Education
Nineteen boards scheduled regular monthly meetings, four boards
met regularly twice a month, and three boards met regularly once a
month and in executive session regularly once a month.
Eleven of the boards had records of practically all unanimous
decisions on resolutions and motions. The study revealed that these
records were brought about by making only those motions and
resolutions which were acceptable to all members. Controversial
issues were deferred without record until unanimous agreement had
been reached. The purpose of this procedure was to prevent faction-
alism from developing and to present a picture of harmony to the
community. However, in these communities there was some criticism
voiced by those outside the board because this procedure gave an
impression of “rubber stamping” or of evading issues because of
disagreement. The samplings of certain decisions in these communi-
ties revealed that the discussions and disagreements were not re-
corded but did take place, and that the official decision was not made
until all were in agreement.
Eighteen of the superintendents presented concise financial reports
to their boards each month. Six prepared reports which compared
the present with the previous year or years. One hundred and twenty-
one of the 135 board members interviewed insisted that a superin-
tendent should be able to present a clear and concise financial picture
to the board monthly or that they should be able to check and inter-
[ 14 |
pret the business manager's report. Sixteen of the Superintendents
indicated that they believed that many boards were more concerned
with a balanced budget than they were in the effect of the budget
upon the instructional program. It can be definitely concluded that
any superintendent who acts as the chief executive will be required
to present complete, accurate, and concise financial reports monthly
to these twenty-six boards if he desires to continue as the chief
executive.
Fourteen of the Superintendents sent to their boards a letter or
bulletin in which the agenda for the meeting, financial report, and
general information were included. These were in the hands of the
board members in advance of the meeting. Four superintendents pro-
vided board members with similar material at the meeting. Thirty-
one out of seventy-eight board members interviewed who received
these letters in advance admitted that they did not read them before
the meeting or that they glanced at them just before the meeting.
The fifty who did read them agreed that they were worthwhile if
brief and to the point.
In the opinion of the board members interviewed (135), pro-
cedures in connection with board meetings, recognized by the board
members as necessary for success by the superintendent, are ranked
in the frequency with which they were mentioned. The following are
broad classifications and are not usually specific tasks:
1. Presentation of clear, accurate, concise financial reports . . . . . . . . . 121
2. Presentation in brief, concise, clear statements of needs of schools
with regard to personnel, textbooks, and courses of study, and
suggestions as to how these needs could be met . . . . . . . . . . . . . . . . 97
3. Presentation of the progress of School activities (e.g., testing and
health programs) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 81
4. Making board members take the responsibility for making legisla-
tive decisions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 67
5. Interpretation of the educational program and modern trends in
respect to their implications and values to youth
S
3
* * * * * * * * * * * * * * *
6. Provision of opportunities for board members to meet with repre-
sentatives of the personnel to discuss problems. . . . . . . . . . . . . . . . 44
There were certain procedures which the school employees con-
sidered essential to the democratic running of the schools. It is impor-
[ 15
tant to notice that these procedures involve many personal relation-
ships with employees. They are as follows:
1. Providing more opportunity for teachers and board members to meet and
discuss their problems.
2. Providing means for the expression of opinion concerning certain policies
and procedures.
3. Providing means for employees, in cooperation with the superintendent, to
interpret the needs and progress of the schools.
4. Avoiding overemphasis upon the financial progress of the schools.
Overtones
The Status of the superintendent in relation to the board of edu-
Cation depends to a great extent upon the type of leadership found
in the Superintendent himself. There may be other factors altering
the situation, over which the superintendent has no control, but a
capable, efficient, and respected school executive is the best guaran-
tee for establishing a functional and socialized type of school ad-
ministration.
The single executive type of school administration is preferred by
the majority of those interviewed, and its adoption or continuance
will depend upon the ability and efficiency of the superintendent to
meet the new problems of finance and business administration. The
laborers interviewed indicated that they prefer a decentralized sys-
tem of administration, such as a dual executive type, in order to
prevent autocracy in the running of School Systems.
The preparation of the superintendent should include a broad
background in business and social scientific studies. There is a need
in the superintendency for competency in Social interpretation and
financial management to Supplement educational leadership in school
administration. The laymen interviewed declared that they realized
that all administrative officers should be first of all educational lead-
ers and that finance, budget-making, accounting, and other functions
of administration are means and not ends in themselves. The dele-
gation of these functions to individuals primarily trained in educa-
tion will depend, however, upon the success with which they can
direct and control these tasks.
Board membership will improve and become more a position of
service and honor when all remuneration is removed for this Service.
[ 16 ||
Every one of the twenty-six cities has the potential danger of the
election of unqualified and politically-minded board members. The
continuance of high standards of board membership in most of these
communities will depend upon the interest and efforts of the voters
to make intelligent selections.
The terms of service of board members should be overlapping and
sufficiently long to provide opportunity for continuity of program
thru long-time planning and the implementation of these plans into
the instructional improvement of the schools.
The smaller board provides more opportunity to act as a commit-
tee of the whole and gives individual members a chance to take a
more active part in the duties and to assume a greater degree of
responsibility.
The organization of boards of education according to their own
rules and resolutions was not adhered to in some of the communities
studied. The attitude of the boards toward rules and resolutions
depended upon factors such as the type of educational leadership,
the personnel of the board, and the size of the board.
Board members who belong to professional and semiprofessional
groups are more enthusiastic about the single executive type of ad-
ministration and the organization of the board as a committee of the
whole than are the unclassified laymen and labor representatives
interviewed. The objections to the single executive type of adminis-
tration were based not on the inherent weaknesses in this type but
on the inefficiency and lack of training of some of the superintend-
ents. The majority of the board members interviewed favor the
single executive type of public school administration.
The most effective type of reporting by the superintendent to the
board of education is that which is simple, brief, accurate, and
timely. Many of the board members interviewed did not read lengthy
reports sent to them by the superintendent.
[ 17 )
III. HOW DOES THE SUPERINTENDENT OF SCHOOLS
AFFECT THE INSTRUCTIONAL PROGRAM?
HE SUPERINTENDENT'S RELATIONSHIP to the instructional pro-
T. depends largely upon the size of the school system. In
cities of populations of 75,000 or more the superintendent con-
trols the instructional program thru the organization, supervision,
and leadership of the personnel. The superintendent’s leadership
Operates primarily thru the selection, placement, and transfer of
staff members, line officers, and classroom teachers. In cities between
7000 and 75,000 the superintendent does some direct supervising
but works mostly with the personnel. The functions of the super-
intendent in cities below 7000 include more direct supervision and
usually Some teaching.
Leadership
Eight of the superintendents had organized classroom teachers
and staffs into committees for the study and development of the
instructional program. Ten superintendents appointed committees
from time to time to study specific curriculum problems. One su-
perintendent had the janitors and clerks organized for the purpose
of studying the opportunities for improving their services. It was felt
that the clerical and service employees should assume Some re-
sponsibility for their own development. The janitors were helped to
see their responsibility for teaching health and cleanliness thru their
work and the clerks worked with high-school students in helping
them obtain office practice. Eleven superintendents used all-city
meetings at which authorities and experts in education discussed
problems of education as means of stimulation and direction. Nine
school systems had been part of a national or state curriculum
study and evaluation program. All nine superintendents of these
systems were planning to use the results of the studies for further
group discussions and guidance in curriculum development.
The twenty-six superintendents valued the committee system and
discussion group technics for staff members as most effective in
creating leadership and drive for curriculum improvement. The
objection to these methods was the time required for effective use.
[ 18 J
The success of any committee system, according to the opinion of
twelve superintendents, depends upon the freedom which committee
members have to develop their own objectives and plans. One su-
perintendent summarized the problem of developing leadership and
drive for the instructional program as follows: “All school faculties
are divided into three groups as soon as the superintendent attempts
to initiate anything new. The first group is anxious to see new things
tried, the second hopes they won’t work, and the third doesn’t care
as long as you don’t bother them and their work.”
The consensus of the twenty-six Superintendents was that leader-
ship for the instructional program is something which must be de-
veloped from within the staff. The responsibilities of the superin-
tendent for this leadership are, first, to organize the staff so that all
members are encouraged to participate in the improvement of the
instructional program; second, to provide for in-service training;
third, to introduce and implement new ideas which may prove bene-
ficial in developing a better program of work; and fourth, to pro-
vide opportunities for teachers to contribute to the development of
the educational policies. Thirteen superintendents believed that par-
ents could help in curriculum planning and three of the thirteen also
included students.
In the opinion of twenty-five superintendents, educational leader-
ship can be obtained best thru the employment of democratic pro-
cedures as these affect the teaching group. However, only two of the
twenty-five superintendents who subscribed to this opinion were
recognized by their employees as meeting these standards to any
degree of effectiveness.
The characteristics which 135 board members and 175 school em-
ployees believed to be the necessary qualifications for educational
leadership are as follows:
1. Ability to stimulate and encourage growth among members of
the teaching staff. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 191
2. Ability to organize members of the teaching staff so there is free-
dom for and encouragement to make creative contributions to in-
structional improvement
3. Ability to keep employees working as individuals and at the same
time as a group with common objectives and a common goal . . . . . 171
4. Ability to direct the implementation of those services and policies
which are recognized as sound and practicable . . . . . . . . . . . . . . . . . 156
[ 19 J
The president of one of the boards defined educational leadership
as that indescribable something which keeps things going in the
right direction at the right time. A supervisor said that educational
leadership is the ability to transfer to a school system a personal
philosophy and ideal which are centered about the welfare of the in-
dividual child. A classroom teacher said that educational leadership
is that something which makes her think that her job is one of the
most important in helping a child become a good citizen.
Supplies and Textbooks
Nineteen superintendents were directly connected with the pur-
chase of supplies and textbooks. Twenty-three Systems purchased
according to standards and specifications and used open bidding in all
purchases of sizable quantities. In thirteen of the twenty-three sys-
tems, superintendents appointed committees to determine the stand-
ards for supplies for the instructional program. The supplies were
then purchased according to these standards.
Research
The study of research procedures in the instructional program
revealed a wide variation in the interpretation of what constitutes
research. In seventeen of the School systems, the measurement of
achievement by means of standardized tests was used to evaluate
the instructional program. Six Superintendents had research directors
who collected additional data with regard to the needs and progress
of schools. Only two of the twenty-six school systems had activities
which would be recognized by research experts as research. The mis-
use of the term “research” had led to confusion in the minds of many
of the laymen as well as the school employees.
Sixty-eight of the professional School employees believed it to be
valuable to obtain reading Scores, pupil costs, achievement scores,
financial data, and other facts for use within the school system. They
also believed that the public distribution of the data was detrimental
in that it emphasized insignificant parts of the whole picture. This
opinion was verified by the number of lay people who referred to
such data as indicators of a poor or a good School system.
Twenty-four of the twenty-six Superintendents did not believe that
the present testing programs were adequate or efficient means of
[ 20 J
appraising the instructional program. Nineteen considered a con-
tinuing survey of all activities to be a better procedure. Seven of the
superintendents had been instrumental in having had surveys made
in their communities under the direction of outside experts. Six
Superintendents were planning to have such surveys made as soon
as finances would permit. The objection to this method of appraisal
was the cost and time required. Fifteen of the superintendents did
not believe that any large Scale building program should be under-
taken without the guidance of a reliable survey.
Eleven activities, called experiments, were shown to the interviewer
in different school systems. Upon investigation not one of the eleven
met the requirements of a genuine research experiment. None of the
eleven projects included complete control over the experimental fac-
tors involved. The eleven activities were attempts to solve a problem
without application of scientific data. Instructional research, strictly
speaking, was missing in twenty-four of the twenty-six communities.
Instructional Policies
The instructional policies were usually found expressed in the
courses of study. Three of the superintendents were attempting to
have their instructional policies organized for adoption by the board.
Twenty-one stated that some of their educational policies followed
custom or expediency at the time this survey was made. Twelve
superintendents believed that an attempt to get a lay board’s adop-
tion of written instructional policies might encourage the members
to take an active part in controlling the details of the instructional
program.
There were certain general procedures and unwritten policies con-
cerning the administration of the instructional program in the
twenty-six cities. Principals were given primary responsibility for
the supervision and development of the instructional programs in
their buildings by twenty-one of the superintendents. Two superin-
tendents placed this responsibility upon supervisors. In these two
systems the principals were teaching practically full time. Both
superintendents were contemplating changes in this type of organi-
zation. Three superintendents assumed full responsibility for the
supervision themselves. Twenty-five superintendents preferred the
supervising-principal with the responsibility for the program in his
building, altho they believed that decision on this point depended
[ 21
upon factors such as the preparation of principals, the enrolment of
individual schools, and the size of the school system.
Seventeen of the twenty-one superintendents who delegated the
supervision and development of instruction to principals did not
use any objective appraisal to determine how these responsibilities
were carried out. The appraisal which the seventeen used was
chiefly subjective. Nine of these seventeen gave indications in their
interviews that the principal’s ability “to keep peace” in his building
and Community was an important factor in this subjective appraisal.
Twenty of the thirty-eight classroom teachers believed that their
Superintendent was not sufficiently informed in regard to the actual
conditions which existed.
Overtones
The superintendent’s responsibility for the instructional program
is recognized by all twenty-six superintendents as of greatest im–
portance to the school system. Altho the board members and lay-
men stressed the business and financial activities of the school sys-
tem to a seemingly greater degree than they did the development of
the instructional program, the superintendent will be ultimately
appraised as an educational leader. The board members interviewed
did not fail to stress the need for a person well prepared in educa-
tional philosophy and background. The reason they minimized this
essential, they explained, is that they believed that most superin-
tendents are better trained in educational fields today than they were
before. They stressed the importance of the superintendent’s partici-
pation in summer schools, round tables, and educational conferences
in order to keep abreast of the times. Many well-read laymen felt
that there were a number of things wrong with school programs but
they admitted a lack of complete understanding of the difficulties
involved. They stressed two problems facing the superintendent in
the instructional program. One is the limitation which is placed upon
him by inadequate funds; the other is the classroom teacher who
has failed to keep up with the changes in education. Seven of the
school systems studied were developing plans either to eliminate
certain of these teachers or to make it compulsory for them to take
additional professional preparation.
A noticeable overtone in the twenty-six communities, which may
be of some significance, is that there has developed among laymen
[ 22
some dissatisfaction with what the schools are doing. They may not
have carefully analyzed all they have heard and read concerning
the school curriculum but they have come to the conclusion that
many teachers are poorly trained and that school methods are often
ineffective. This attitude is mentioned here because many good things
which the schools are doing suffer because of a critical attitude which
has developed toward the schools in general. In discussing this prob-
lem with the superintendents, eight of those interviewed stated that
they believed considerable harm had been done by the wide cir-
culation of criticisms of the school program thru newspapers and
magazine articles and also thru public discussion. In sixteen com-
munities laymen specifically referred to the findings of the Regents’
Inquiry into the Character and Cost of Public Education in the
State of New York, information about which they had secured thru
Current periodicals and public discussions.
Too many administrators confuse research with the collecting of
facts concerning age-grade status of pupils, reading scores, adminis-
tration of standard tests, cost accounting, and other such activities.
These tabulations may all be helpful but do not constitute an ade-
quate program of research.
A majority of the supervisors of elementary education believed
superintendents were not sufficiently trained in the principles and
practices of primary and elementary programs. Only one of the
twenty-six superintendents had had actual experience with elemen-
tary education before entering administration. One superintendent
had not been in an elementary room for the past three years.
[ 23 ]
IV. WHAT IS THE ROLE OF THE SUPERINTENDENT
OF SCHOOLS IN PERSONNEL MANAGEMENTP
CCORDING TO THE TWENTY-SIX SUPERINTENDENTS OF SCHOOLS,
A. the School personnel has changed considerably in the past two
decades. Outstanding changes were noted in the type of
persons entering the teaching profession with regard to their edu-
cational background and social philosophies. The old saying, “Those
who can, do; those who can’t, teach!” is less true than formerly.
The nonprofessional personnel of the school has also changed.
The clerical, janitorial, and nonteaching services are receiving more
attention as positions with important relationships to the instruc-
tional program. The persons employed are younger and better trained
than in years past. The positions themselves are more attractive
than they were during the gay twenties and boom days. Two school
Systems had definite training programs for the nonprofessional per-
Sonnel.
Selection of School Employees
The foregoing changes have created new problems for the ad-
ministrator. The greatest of these is that of personnel selection.
Eleven Superintendents maintained that the most important quali-
fication of an administrator, one that cannot be predetermined, is
the ability to select the right person for the right job. Two super-
intendents suggested the possibility of determining the social and
educational philosophies of an administrator by his selection of
persons to fill the vacancies which occur. In the selection of an
employee the superintendent may not only strengthen the instruc-
tional program but also increase the prestige of his leadership with
school employees, board members, and laymen. The superintendents
in the present survey stressed the importance in personnel selection
of keeping a high degree of balance with regard to the cultural
background, social philosophy, and Occupational preparation of
prospective employees.
Nine superintendents did not participate in the selection of all
the personnel because the board gave the responsibility for certain
[ 24 |
employees to another executive. Five superintendents depended upon
a committee of the board which selected candidates from those
names submitted to them by the superintendent. An interview
wherever possible was prerequisite to appointment in all twenty-six
of the cities.
The methods employed in the selection of personnel depend upon
the authority and philosophy of the Superintendent. One Superin-
tendent by authority of power vested in him not only selected all
teachers but also assigned them to building and classroom duties.
Another superintendent had practically no control over the Selection
of the personnel. The board did most of the selecting and restricted
the appointments to local people and graduates of a local College as
much as it was able. Ten superintendents nominated those who
were first of all acceptable to the staff or line officers with whom they
would be assigned. Seven of these ten used board members also in
the selection.
The appointment of personnel in the twenty-six school systems
was dependent upon certain factors over which the candidate had
no control but which were important to the board. Altho there were
few board rules as to requirements, the case studies revealed that
certain factors received great emphasis. In addition to educational
qualifications the requirements for the teaching staff were as follows:
A. Written requirements:
School systems
Two years of experience . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
Good character . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11
Good health . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
Unmarried women only . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
B. Determining factors established by precedent or custom and recognized
by the superintendent, board members, school employees, and laymen:
School systems
Race . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
Good health . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20
Nationality . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
Religion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16
Social philosophy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11
Affiliation with labor groups. . . . . . . . . . . . . . . . . . . . . . . . 9
Local residence . . . . . . . . . . . . . . . . . . .* * * * * * * * * * * * * * * * 4
Attendance at local college . . . . . . . . . . . . . . . . . . . . . . . . . 1
Twenty boards of education gave local talent precedence in ap-
pointment if other things were equal. The actual facts revealed that
there is more pressure than ever before upon boards of education
to employ local residents. This condition has resulted in the adoption
of certain policies by some boards to protect the superintendent
from pressure in the selection of candidates. In eight of fourteen
cases there had been exceptions to this rule between the years
1931 and 1936. Two of these had made exceptions since 1936. Twelve
had returned to observance of the policy because of the difficulties
in meeting local demands.
Follow-Up of Employees
The orientation of new employees was delegated by all twenty-six
superintendents to supervisors or principals. Only in the smaller
systems did any of the superintendents attempt direct supervision.
Nine Superintendents made an effort to visit all teachers once each
year. Twelve superintendents visited only the new teachers the first
year. Two superintendents visited new teachers twice a year and
old teachers once a year. Three superintendents had no program of
visitation and visited only upon certain occasions.
Fourteen superintendents required written reports on all teachers
from principals or Supervisors each year. Four required written
reports on new teachers the first year. Five superintendents employed
the rating scale for teacher evaluation. Three of these five were not
satisfied with this method of appraisal. Three superintendents did
not use any written report by principals or supervisors.
One superintendent required a special written report on all
teachers whom the principal desired to have dismissed or transferred.
The principal had to list the weaknesses of the teachers and then
was required to show what he had done to help the teachers overcome
them.
Nineteen of the school systems had salary schedules in operation.
All nineteen recognized the amount of training as one factor upon
which advances were made. Six made additional grants for summer
school work or travel. All twenty-six superintendents believed that
promotion from within the ranks was the best method to stimulate
and reward special achievements.
In nine of the systems it was stated that employees were per-
mitted to belong to any organization they desired. However, they
[ 26 J
were not free to take an active part in communistic or labor groups
in any of the nine. By “communistic groups” were usually meant
those which leaned to the left.
A majority of the School employees interviewed in the twenty-six
cities stressed the need for tenure laws, retirement laws, sick leave,
and Salary Schedules as a means of protection from the influence of
politics, not only for themselves but for the superintendent. Sixteen
Superintendents did not favor a tenure law because “good teachers
didn’t need it and poor teachers shouldn’t have it.” They believed that
tenure laws gave protection only to the teachers and that the com-
munity should also be protected against unsatisfactory teaching
services.
Overtones
Teachers leaving colleges and universities today are more highly
selected than they were two decades ago and will continue to be more
so in the next two decades to come. The picture of supply and de-
mand has reversed itself since the World War and superintendents
now do not need “to go begging” for teachers. -
Today persons who secure positions as teachers do not look upon
their jobs as stepping stones to other professions. This situation
is caused by two factors: first, employment conditions outside
the schools; and, second, the high degree of specialization which
is required of those who receive teaching certificates. This speciali-
zation has made it almost impossible to qualify for the requirements
of other professions in addition to teaching. The young teacher who
contemplates going into another profession is faced with the neces-
sity of returning to college to meet the specialized training required.
Many young ambitious teachers soon acquire master’s degrees in
education and so hesitate to invest in the Special preparation re-
quired by other fields.
Not only is the modern teacher more specialized in his professional
preparation but he has studied the sciences and cultural subjects
related to teaching. Science has aided in developing greater knowl-
edge about the processes of the human body and mind. The social
and economic studies have changed the interpretations of the facts
concerning society and the needs of its members. This interpretation
has placed a new emphasis upon the relationship between the school
and society. The teacher of today is, therefore, a product of a more
specialized system of training, a broader and more complete back-
[ 27 J
ground in the humanities, and a changing concept of the relationship
between the school and society.
The confidence the public displayed in the superintendent indi-
cated the confidence in the rest of the personnel. The teachers who
were bringing their differences with the administration out in public
were weakening their public support as much as that of the superin-
tendent. The laymen interviewed were almost unanimous in their
demand for loyalty to the executive. Wherever the staff and other
employees were attempting to build confidence in the executive,
there was considerable confidence in themselves. The laymen inter-
viewed do not understand the disloyalty found within the ranks of
the educational personnel. Some attributed it to the inferior type of
teacher who seeks security at another's expense.
The personal visit on the part of the executive is the most im-
portant factor in building goodwill among members of the teaching
group and custodians.
Freedom to participate in discussions eliminates misunderstand-
ings and disloyalty.
The cases which indicated serious disloyalty to the executive re-
sulted from misrepresentation of the Superintendent by Staff and
line officers. Those teachers and members of the staff who were pro-
vided with opportunities to deal directly with the executive were most
loyal.
[ 28 |
V. HOW DOES THE SUPERINTENDENT OF SCHOOLS
DEAL WITH FINANCIAL PROBLEMS2
HE FINANCIAL PROBLEMs which confront public school ad-
ministrators and boards of education received major emphasis
by those interviewed. In many of the interviews it was necessary
to inject questions concerning other phases of school administra-
tion, but each of the adults interviewed, without any suggestion by
the interviewer, mentioned the financial part of school administra-
tion. Beginning with the Seventeenth case study, notations were
made as to what qualifications or phase of school administration the
persons interviewed mentioned first. In 114 out of 184 interviews
some phase of School business or finance was mentioned before any
other topic.
School Revenues
Twenty of the twenty-six superintendents ranked school finance
as the most difficult problem which they faced. The basic diffi-
culty was the insecurity of any long-time financial program. This
insecurity was caused partly by the increased demands upon local
and state funds of old-age groups and those on welfare. The de-
mands of these two tax-supported groups on the one hand and the
resistance to increased taxes on the other, or in some cases actual
reduction, led legislative bodies to change the allotment of available
funds.
This instability in school revenues has presented school adminis-
trators with a new problem. The superintendent under the single
executive type of administration must compete with representa-
tives from other local tax-supported services for a justifiable amount
of the available local revenue. He must maintain close contact with
the state and federal activities so that he can interpret to his board
and community the trends in state and federal aid.
The superintendent may be able to gather about him good finan-
cial advisers, accountants, bookkeepers, and other assistants to
help, but he must ultimately explain to the board and community
the probable effects of the financial situation upon the instructional
[ 29 J
program. In five communities, one of the factors determining the
type of administrative organization (single or multiple types) was
the ability of the superintendent to interpret financial and budget-
ary problems.
Fiscal Independence of School Systems
The value of fiscal independence of the school system from other
public services in the community was recognized by 128 out of 135
board members as essential to the welfare of the schools. However,
the annual or biannual allocation of local or state funds has made
the school dependent upon the goodwill and interest of the legisla-
tive bodies. The interpretation of the needs of the school must be
continual and well organized in order to meet those of the other
tax-supported agencies. Twelve superintendents declared that they
had been forced by pressure to participate in political lobbying in
order to maintain adequate funds for the Schools.
Demands of School Employees
The personnel in the public school is no longer the docile, passive,
peace loving group found at the turn of the century. Those entering
teaching today are better trained, more widely acquainted with
social problems, and less inclined to look upon their jobs as tempo-
rary employment. Teaching is their livelihood and by it they seek
economic security first of all. Take away or impair this security and
a serious problem is created. Each decrease in any appreciable amount
allocated for the schools endangers their income and position. Teach-
ers clubs, federations of teachers, and State teachers associations are
making their demands to administrators and boards of education
for financial security. When the Superintendent interprets the finan-
cial status to the personnel of the Schools, he is confronted with a
problem which demands educational and financial competence.
Budget Procedures
Fifteen superintendents were employing some form of teacher
participation in the making of the budget. In nine of the case studies
it consisted of making requests for consideration by the superin-
tendent and the board. Six offered opportunities for discussion on
salary items and other parts of the budget pertaining to instruction.
[ 30 ||
The final budget in these systems was the result of group discussion
and agreement.
In all twenty-six of the case studies the type of budget was de-
pendent to a great extent upon federal, state, county, and local
requirements as well as the suggestions of the state department of
education. Sixty-one board members stated that one of the weak-
nesses of their superintendent was his attempt to present too many
budgetary details to the public. This practice was believed to be
Confusing and the insignificant details became matters of great
importance, whereas the budget as a whole and its relationship to the
instructional program received secondary consideration. These sixty-
one board members suggested that a detailed budget should be
ready at all times for board members and citizens who are interested,
and a more general budget for public interpretation. Seven of the
Superintendents stressed the social and educational implications of
their budgets in prefaces and introductions to their budget statements.
There was a significant difference in the attitude toward the
adopted budgets where there was the dual executive type of adminis-
tration. In these School systems the business manager considered the
items of the budget as fixed and nontransferable. The budgets in the
single executive type of administration were considered as financial
guides but flexible enough to meet changing needs of the program
of the schools. The transfer of funds among the subdivisions of
budgets was very difficult to accomplish under the dual executive
type of administration. This difference was to a certain extent the
result of the division of responsibility. The superintendent under
the single executive type was responsible for the whole program of
the schools. The business manager under the dual system was re-
sponsible for only the financial and business functions.
School Cost Studies
Five of the superintendents were located in states whose state
departments of instruction place considerable emphasis upon the
tabulation and circulation of school cost information. Undoubtedly
state departments did not realize that these data were being used
as standards by many board members. In all five of the cities certain
board members during the interview produced some of the data
to show where their school ranked in certain costs. This practice of
circulating school cost tabulations has been detrimental because such
[ 31 J
data are not always comparable and emphasis has been placed too
frequently on per pupil costs rather than upon the child and his
needs. In one city the program was curtailed because certain board
members were trying to reduce their per pupil cost to meet that of
a neighboring city. Eight of the superintendents interviewed had
used comparisons to substantiate or defend their school costs because
of the local publicity which had been given to state and national cost
Surveys.
Overtones
Forty-seven board members in the twenty-six cities expressed the
opinion that many superintendents do not know how to deal with
the board in financial matters. They expressed the belief that most
administrators fail to distinguish financial explanations from their
own educational processes and theories. The board members inter-
viewed believed that they should act as boards of directors and
that the superintendent should be responsible for the management
of the system. They would like to appraise him on his product, the
spirit of his staff, and the balanced budget.
The general opinion among the lay leaders interviewed was that
they wanted a superintendent who was both an educational leader
and one with a sensitivity to financial problems. They intimated that
an efficient superintendent would surround himself with capable
assistants and that he would spend his time on coordination and
direction.
The laymen interviewed in all twenty-six cities were emphatic on
the problem of finances. This attitude may be the result of present
conditions. All of the superintendents had been driven to unit cost
accounting procedures, altho they realized the dangers. The laymen
interviewed indicated that they were depending upon aid from state
and federal governments to help them finance the schools.
[ 32 |
VI. HOW CAN THE SUPERINTENDENT OF SCHOOLS
IMPROVE THE PUBLIC RELATIONS PROGRAM?
ONE OF THE TWENTY-SIX SUPERINTENDENTS OF SCHOOLS had
| N an organized, continuing public relations program. Twenty-
four were convinced of the importance of systematic and
organized public relations. Sixteen emphasized the need of better
preparation in public relations work for all employees in the school
system. Professional and nonprofessional laymen interviewed in the
twenty-six cities emphasized the following weaknesses in public rela-
tions programs:
1. School people assume that parents and other members of the com-
munity read more than they do. The interviews showed that very
little of the written material sent to the homes was read . . . . . . . . 212
2. Teachers are confused in their thinking about changes in education
and are confusing the public to such an extent that the laymen
Suspect the teaching group of guessing at a lot of things. . . . . . . . 101
3. Too many School employees are interested in participating only in
those community affairs which concern the school, particularly
financial Support . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 184
4. Too few of the staff and line officers of the schools take an active
part in community affairs. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 179
5. School employees, as a rule, do not know how to mingle with lay
and business people as other professional men do. Too many of
them treat adults as children . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 144
6. Too many educators are only concerned about “talking shop” and
do not show enough interest in other things in the community. . . . 129
7. Teachers lack tact in meeting social and community problems . . . . 97
Public Relations Procedures
The printed materials of school systems which were most widely
read by 196 of the laymen interviewed were the illustrated reports
and surveys of school activities. Laymen interviewed most frequently
mentioned the sports page and special Sections of the local paper
which contain graphs and pictures of school activities as their chief
sources of information concerning the schools. Among the devices
in public relations listed by laymen as having great appeal or believed
to be representative of what the schools are doing were the following:
[ 33 |
2
1. Student and faculty organizations: . School programs:
a. Athletic teams a. Athletic
b. Band b. Musical
c. Orchestra c. Dramatic
d. Glee clubs (student and faculty) d. Radio
e. Dramatic clubs. e. Speaking contests
f. Spelling contests.
Qualifications of the Superintendent
The personal qualifications necessary to enable a superintendent
to carry on good public relations according to the laymen inter-
viewed are:
. Social sensitivity.
. Ability to speak effectively but in plain, simple terms.
. The ability to mingle with lay groups in their sports and social affairs.
. The ability of the superintendent to present a financial picture of the public
Schools in a concise and representative type of report.
5. The ability to organize the staff and line officers to such an extent that a
layman can get any information he wants at any time by making contacts
with the person in charge of the activity.
6. The ability of the superintendent to recognize and call by name a large
number of business and professional people.
.
Overtones
The interesting overtone obtained from all twenty-six communities
is that the attitude of the public toward the superintendent also indi-
cates their opinion of the rest of the school employees. In those
communities where complete harmony and confidence seemed to
exist between the administrator and the school employees, many
good things were said about both; whereas, in those school systems
where certain employees emphasized their differences with the ad-
ministrator, there exists a suspicion on the part of the majority of the
laymen interviewed toward these employees as well as toward the
superintendent. The public does not understand this discordance. It
would shock school employees in some communities to learn how
much they weaken their own positions in their attempts to weaken
the superintendent.
This study seemed to indicate that the best public relations exist
where school employees follow the axiom, “One for all and all for
one.” It seems that little is gained and much is lost by the publicity
[ 34 ||
given internal differences and strife. The former president of one of
the boards said in reference to a situation which had previously ex-
isted involving considerable strife and friction between school em-
ployees: “We cured that—we threw them all out. They can’t do
good work in the classroom when they are all the time fighting each
other.” This overtone does not imply that evil should be endured for
harmony’s sake. It does imply that the friction and differences which
may exist should be intelligently and quietly worked out together.
The innocent may also suffer by the verdict of those outside the
school system.
Many of those who referred to the speaking ability of the Superin-
tendent as one of the essentials of a good public relations program
also emphasized a sense of humor as being more important than
the ability to impress an audience with his knowledge. They believe
that superintendents err in thinking that they must always talk about
schools. The community enjoys most the Superintendent who can
talk intelligently and interestingly on subjects other than education.
The ability to mingle with lay groups in their sports seemed im-
portant. The influence of fourteen superintendents in their com-
munities was attributed to their ability to meet and to associate with
all people on common ground on all occasions. Two Superintendents
were severely criticized for not being able to participate in sports.
Laymen believe that more support for public Schools comes from
personal contacts and the respect for the administrator developing
from these contacts than from all the meetings and written articles
which are used.
Emphasis was placed upon organization of the staff and line officers
in such a way that a layman can get information at any time. Two
of the superintendents were praised highly by the laymen inter-
viewed for having set up a system in which any employee could give
immediately the facts wanted. A study of technics revealed that
those two superintendents made a special effort to train all office
employees and staff and line officers to keep certain data available
and to be able to answer the public when asked for information.
It is also important for the superintendent to be able to recognize
and to call by name a large number of the local business and profes-
sional people as well as students. Some of the businessmen inter-
viewed mentioned first the fact that the superintendent called them
by name when they were students.
[ 35 |
VII. WHAT KIND OF SUPERINTENDENT OF
SCHOOLS IS WANTED BY LAYMEN AND
SCHOOL EMPLOYEESP
Were
HE APPRAISAL OF THE QUALIFICATIONS of the superintendent
of schools by those interviewed was divided into two parts. The
first consisted of those qualifications which were thought to be
contributing factors in the success of the present superintendent.
The second included those qualifications to be used if they were
selecting a new superintendent. This second part was not merely a
theoretical question because in four communities the superintendents
nearing the age of retirement and open discussion had already
occurred in two of the four cases.
The qualifications which those interviewed believed were con-
tributing factors to the success of their present superintendent are
Characteristics Making for Success
listed in the order of frequency with which they were mentioned:
1. Character . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 419
2. Scholarship
Thoroness, accuracy, intelligence, etc. . . . . . . . . . . . . . . . . . . . . . 411
3. Business ability
Finance, taxation, etc. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 389
4. Personality . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3.71
5. Executive ability
Organization, ability to handle people . . . . . . . . . . . . . . . . . . . . . . 364
6. Sociability . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 343
7. Speaking ability . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3.18
8. Community interests . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 294
9. Writing ability . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 254
10. Culture . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 189
11. Religious activity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 121
12. Personal contacts with teachers, students, and citizens. . . . . . . . . 94
Traits to be looked for in “the next superintendent” were listed by
Qualities To Be Sought in Next Superintendent
469 of the 503 persons interviewed. Educational qualifications were
| 36 |
assumed, with no degree below a master's considered worthy of con-
sideration. The frequency of mention of other qualifications was as
follows:
1. Character . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 413
2. Business ability, finance, taxation, management, etc. . . . . . . . . . . . 391
3. Administrative or executive ability . . . . . . . . . . . . . . . . . . . . . . . . . . 383
4. Personality . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 378
5. Educational leadership . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 361
6. Sociability . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 328
7. Community leader . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 291
8. Speaker . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 201
9. Culture . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 158
10. Writer . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 96
11. Married and children . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 84
12. Religion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 47
Undesirable Traits and Behavior
In 394 interviews the interviewer asked the question, “What pro-
cedures do you consider have been detrimental to superintendents
you have known?” It is interesting to note the frequency of the re-
plies and how closely they are related to characteristics and qualifi-
cations of the superintendent.
1. Personal practices
Marital problems, immorality, dishonesty, lack of dignity, social
maladjustments, etc. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 201
2. Lack of ability
Business . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 184
Educational . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 161
3. Autocratic methods . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 149
4. Political activities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 109
5. Failure to cooperate with community enterprises. . . . . . . . . . . . . . . 79
6. Too much speech making. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 51
When those interviewed were questioned about the personal free-
dom of the superintendent as a citizen and individual, they gave
many different interpretations. It was impossible to group or catalog
them but the general answer was that the private life of a superin-
tendent is restricted because of his public position. His actions should
be the kind that will not injure the respect and dignity of the office
he holds. The community desires to have at the head of its school
system an individual who is first respected as a man among men.
[37 )
The qualification which this interpretation suggests is a higher degree
of social sensitivity.
Summary of Qualifications
The analysis of all the case studies revealed that the following
qualifications were common to at least twenty-five of the twenty-six
superintendents.
1. Resourcefulness—All of the superintendents interviewed were recognized
by laymen and school employees as individuals of ability and resource-
fulness.
2. Age—The majority were men between the ages of 40 and 60:
Four were between the ages of 34 and 40
Nine were between the ages of 40 and 50
Seven were between the ages of 50 and 60
Six were between the ages of 60 and 68.
3. Marriage—Twenty-five were married men; twenty-two had from one to
six children.
4. Education—All twenty-six had obtained the bachelor's degree; twenty-five
had completed the work for the master's degree; all had taken graduate
work in education.
5. Experience—Twenty-five had served as classroom teachers and twenty-five
had served as principals.
6. Character and citizenship—All twenty-six were men whose character and
citizenship were recognized as of a superior type by laymen and school
employees.
7. Ability—Twenty-five superintendents, according to the board members,
laymen, and school employees in their communities, were:
a. Qualified to meet the responsibility for educational leadership in the
instructional program.
b. Qualified as personnel managers of the employees under their super-
VISIOI).
The following were qualifications common to twenty of the sup-
erintendents according to the opinions of those interviewed in their
community: -
1. Ability to meet all individuals on their own level.
2. Ability to organize and supervise the business activities of their school
System. -
3. Ability to establish confidence in the educational leadership thru their
talent for public speaking.
! Ethics
Closely related to the characteristics desired in superintendents
of schools is the question of professional ethics. The standards of
[ 38 |
personal and professional behavior which superintendents set for
themselves have as yet been scarcely reduced to writing. Twenty-one
superintendents were strongly in favor of a code of ethics which
would be established and rigidly maintained by the national asso-
ciation. They believed that it was important to do something to pro-
tect the ethical superintendent from those who are ruthless in their
procedures and technics. They expressed an opinion that the Ameri-
can Association of School Administrators had both the duty and the
power to establish strong professional ethics among those who are
and will become superintendents. The laymen, particularly the mem-
bers of the nonschool professions, stated that they would welcome a
code of ethics for superintendents which would protect them from
the nonprofessional type.
Overtones
It may be helpful to summarize here the overtones that were gath-
ered concerning the office of superintendent of Schools. Only those
overtones are listed which were predominant in all twenty-six of the
communities.
1. The superintendency of the public school is considered one of the most
important, if not the most important, public office and service in the com-
munity. -
2. The superintendency must be democratic. It should seek to serve all social,
economic, racial, and religious groups in the community.
3. The superintendency is a position of dignity and respect.
4. The superintendency should reflect the highest type of citizenship, educa-
tional leadership, and progressive social thinking.
. The superintendency should be free from all political, social, religious, and
economic pressure groups.
5
To some these may appear too idealistic but, nevertheless, the in-
terviews clearly indicated that they were the attitudes of several
of those interviewed in each community.
In the discussion of ethics the lay people believe that the teaching
profession has been too slow in establishing the professional status
of its members. Some attributed this delay to the fact that it is too
easy for the line and staff officers to become superintendents. Laymen
desire some qualifications and code of ethics which would protect
them from the undesirable administrator.
[ 39 |
GENERALIZATIONS FROM THE STUDY
CHOOL SYSTEMS TODAY ARE NOT ISOLATED from the critical
S problems of our national life. Since to some the superintendent
personifies the local school system, his administration is always
under close scrutiny. This statement is especially true today. The
position in the twenty-six School systems visited is such that a con-
siderable part of the superintendent’s time is consumed in working
with national, state, and local groups in meeting problems such as
those of finance, teacher tenure, retirement, building programs, com-
munity projects, and youth programs. Teachers, board members,
labor groups, and community leaders expect the local superintendent
to represent them and to keep their community abreast of the
major educational developments. Obviously, to do so the superin-
tendent must delegate a large number of duties such as the selection
of textbooks, the purchasing of supplies, and the management of
buildings and grounds.
The question that immediately arises is to determine whether or
not the present status is a fairly permanent one or merely a transi-
tional stage moving toward a future organization. The lay people
interviewed, as well as the superintendents and school employees,
indicated that they felt that the superintendency is not going to
be a more simplified task in the future but rather more and more
complex. The demands on the superintendency now and in the
future will be such that it will require a person of superior skill and
wisdom in both education and business administration to cope with
the problems which are and will be placed upon the shoulders of
the chief school executive. This study gave strong indications that
the school employees themselves desire a person as superintendent
who is as well qualified to cope with the problems of finance and
business as he is to give them educational leadership. The board
members interviewed frankly admitted that they were at a loss in
coping with the new problems in School finance, curriculum develop-
ment, and educational programs. It is necessary to depend con-
siderably upon the person chosen as chief executive of the school
[ 40
system to give them leadership, direction, and wise counseling in
these matters. It is also necessary that the superintendent be an
individual able, in competition with the representatives of other
groups, to present before tax allocating boards the school system’s
case for a just share of public revenues.
It was important to note that, altho the future superintendent of
schools will be expected to possess many more skills and technics of
business and financial administration, the appraisal made of the
superintendency in any community is based ultimately upon the
progress and development of the school system. The business activity
of the public school is not an end in itself but a means to developing
a more successful instructional program, and must be interpreted
as such. The school systems, in all of the communities in which these
case studies were made, were appraised in the final analysis not only
by the balanced budget but also by the product which the schools
turn out. Every community recognizes that the greatest number of
its graduates will go directly into the world of work as soon as they
are graduated and for that reason need to be equipped for the duties
to be placed upon them. However, these communities also expect that
those who are not leaving school shall be so prepared that they may
successfully complete their work in higher institutions.
The school employees appraised their superintendent not only
for his educational leadership but also for his ability to provide them
security thru tenure and a sound financial program.
The single executive type of administration is recognized as
superior to the dual or triple type found in some communities. The
determining factor, as to the type most communities will have, is the
kind of superintendent the teaching profession will be able to offer
to these communities in the future. The importance of public confi-
dence in the superintendent was stressed by all twenty-six of the
superintendents. The only assurance a community can have that
the superintendent will be the executive head and chief administrator
of the instructional and business program of the school system will
be the employment of competent, efficient, and alert individuals as
superintendents of schools. -
The qualifications for certification in public school administration
should be limited to those qualifications that can be certified or
legalized such as age, health, and education. These qualifications
should include a type of preparation which is recognized as necessary
[ 41 ||
for school administration by those who are selecting, employing, and
issuing superintendents’ certificates. This study indicates that a
master’s degree is the minimum educational requirement that will
be acceptable to the twenty-six communities in selecting their next
superintendents. It is interesting at this point to note that the agency
which established the master’s degree as a minimum requirement
for the Superintendency was not state or local regulations, but the
standards established by accrediting associations such as the North
Central Association. All board members insist that their school
systems maintain the standards required to continue their mem-
bership in these accrediting associations and observe carefully the
recommendations made by them.
The lay people interviewed reported that they were not completely
assured that the master's degree in education indicated the comple-
tion of the requirements essential to school administration, par-
ticularly in the fields of finance and business administration. They
believe that the schools of education today are giving a good back-
ground of philosophy, methods of Supervision, psychology, and
other educational courses, but that superintendents often lack train-
ing to cope with problems such as taxation, federal and state aid,
building programs, and local problems of cost accounting which
are considered essential to a sound program of school administration.
The twenty-six superintendents and most school employees agree
that a more democratic type of school administration is inevitable.
The complications in administering school systems will automatically
force more and more delegation of the duties of the superintendent
to other members of the school staff. The interesting overtone that
came from these case studies is that school employees are not
clamoring for the extreme type of democratic administration some
have advocated. They believe that there should be a chief executive
of the school system whose duty is to direct the educational and
financial program of the schools. They believe that there must be
one individual who must take the leadership in interpreting and
putting into practice the policies of the board of education. The
changing requirements placed upon the executive head of a school
system make it mandatory that some one individual be given the
necessary powers and responsibilities in order to meet these obliga-
tions efficiently and accurately.
[42 |
School employees believe that an administrative committee how-
ever organized, if given the same powers and functions as a Super-
intendent, would need so much time to meet the problems ade-
quately that the committee itself would soon become not one but
Several individual executive heads. Some of those interviewed
believe that such a system would aid the forces which are at work
to bring school systems under the control of city governments. A
few of the interviews revealed to an alarming degree the forces
which are at work to make the school system a part of local govern-
ment. This movement is not a new one nor is it unfamiliar to most
educators. There is, however, a new set of conditions which make
the arguments for control of the school by the city government
more attractive to the uninformed voter. The advocates for the
change are receiving attention from those who are dissatisfied with
the program of the schools, those who think that there might be
savings to the taxpayers, and those who feel that the schools or
school employees are directly or indirectly responsible for the spread
of communism. Altho the number of laymen injecting this point into
the interviews was small, nevertheless it included some of the
leaders in these communities. They were all convinced, however,
that the ultimate answer will depend upon the type of educational
leadership we have in the near future and the success or failure of
our democratic form of government.
The study clearly revealed that the administration of the public
schools in any community is a challenge to all of the resourceful-
ness, intelligence, patience, tolerance, and tact an individual has to
offer. The superintendency is a unique public office in the community.
It is nonpolitical, nonpartisan, and must be democratic in purpose.
When other public officials are faced with controversial issues, they
can rely upon their party members or political backers to support
them in their decisions to a reasonable degree. The superintendent of
schools dares not turn to or become identified with any group in the
administration of his office. The support of a political group or
party might make him vulnerable to his critics. The board of edu-
cation may change completely during his tenure of office and those
“for” as well as those “against” his administration may sit in judg-
ment on him. He must be ready at all times to give a strict account
of his stewardship. -
[ 43 J
The superintendency demands a keen insight into human nature
as well as a fine balance between theory and practice. Above all the
superintendent needs a sense of humor to carry him thru when
everything else fails.
He will be criticized by some for talking too little and by others
for talking too much; by some for his conservatism and others, his
progressiveness; by the taxpayers for spending too much and the
teachers for giving them too little; by the board for not balancing
the budget, and the community for not providing an adequate edu-
cational program; by some for being a “sissy” and others for
“riotous” living. If he goes to church, he is a hypocrite; if he doesn’t,
he is a heathen. If he belongs to fraternal and luncheon clubs, he will
be looked upon by some as being political; and if he doesn’t, he
will be considered a poor mixer. As one layman put it: “You’ll be
damned by some of the people some of the time and by some of the
people all the time, but the best policy for a superintendent to follow
is to do the right and honest thing at the right time and in the right
and honest way.”
[ 44
CONCLUSIONS AND RECOMMENDATIONS OF THE
COMMITTEE
s A RESULT OF THE EVIDENCE EXAMINED in the prepara-
tion of the preliminary report, Standards for Superintendents
of Schools, and of the present study, the Committee on Certi-
fication of Superintendents of Schools believes that a statement
should be made which will deal with broad issues rather than with
narrowly defined standards of the superintendency.
The investigations of the Committee clearly show that the success
of the superintendent of schools is linked with intricate and dynamic
social situations. The quality and Scope of his activities are fre-
quently more influenced by limitations placed upon him by the board
of education and its membership, by the community and its tradi-
tions, and by state law and its interpretations than by his own stand-
ards of professional procedures.
The Committee deems it to be desirable to present the essential
elements of the whole pattern, believing that if this were followed,
it would most certainly provide a greater guarantee that the public
schools would operate to the best advantage of those whom they
were designed to serve. It, therefore, presents the following con-
clusions and recommendations.
1. The American Association of School Administrators believes
that the people are best represented and the schools best
served when there is a board of education—
a. Composed of five to nine laymen selected on a nonpartisan
ticket to serve without compensation for relatively long,
overlapping terms.
b. With authority to determine the school budget, to maintain
its own financial accounts, to manage its business affairs, and
independently to levy taxes in support of education under
such regulations as may be prescribed by law.
c. With freedom from the interference of local governmental
officials in the employment of professional and noncerti-
[45]
ficated personnel, and in the purchase of architectural and
similar special services.
Organized to conduct its business as a committee of the
whole, except where temporary special Committees are asked
to formulate a program or procedure later to be considered
by the entire board.
With full recognition that one of its most important duties
is the selection of the superintendent of schools—its chief
executive officer.
. The Association believes that in any statement defining the
relationships between the board of education and the superin-
tendent of schools, the following principles should be observed:
a.
The superintendent should nominate all employees and the
board should elect only upon his nomination.
. Instruction, curriculum, School organization, and similar
matters involving professional competency are responsi-
bilities of the staff under the leadership of the superintendent.
. The superintendent of schools should submit an annual bud-
get for the consideration of the board of education.
. The details of operation of the schools should be admin-
istered by the professional executive in accordance with
the rules, regulations, and policies approved by the board
of education.
The superintendent should expect to be held accountable to
the board of education for formulating for its consideration
an educational program based upon community needs,
sound professional theory and practice, and available finan-
cial resources.
. The Association recognizes that an efficient school administra-
tion will provide for—
a.
Cooperative endeavor in the formulation of educational
policies and the utilization of the intellectual and profes-
sional resources of the whole school staff.
[46 |
b. A plan by which any individual employee may present his
suggestions and appeals directly to the Superintendent of
schools, when the usual administrative channels do not
function.
c. Opportunity for organized groups within the personnel to
offer their well-considered recommendations to the Super-
intendent of schools and to the board of education.
4. The Association believes that in clarifying the status and rela-
tionships of boards of education and superintendents of Schools
there should be state legislation—
a. Safeguarding the governmental independence of boards of
education.
b. Requiring the selection of all city, County, and state Super-
intendents by board appointment rather than by popular
election.
c. Prescribing the minimum requirements of professional
2 preparation and experience necessary for those entering the
superintendency as not less than the following:
(1) Twenty-five years of age.
(2) United States citizenship.
(3) Evidence of sound physical and mental health based
upon the written statement of an approved physician.
(4) Four years of both professional and cultural studies
in a standard and accredited college plus a minimum of
one year of graduate study terminating in the master’s
degree.
(5) Three years of successful experience in classroom, ad-
ministrative, or supervisory positions in public School
systems.
5. The Association urges collegiate institutions to cooperate with
it and with state departments of education in providing—
a. Systematic plans for the recruitment and selection of persons
with the necessary qualities for leadership in education.
[47
b. Cultural and professional study in areas such as political
Science and government, economics, sociology, public finance,
child psychology and hygiene, teacher personnel, school ad-
ministration, public relations, vocational education, and cur-
riculum development.
c. Conferences, surveys, and field work designed to make the
foregoing studies an integrated program rather than a mere
collection of courses.
6. The Association should take the lead in formulating a code of
ethics for superintendents similar to the National Education
Association’s Code of Ethics for Teachers but incorporating
ethical principles peculiar to the superintendency. Effort should
then be directed toward winning the acceptance of this code
of ethics by Superintendents’ organizations and by boards of
education and toward the development of the appropriate pro-
cedures whereby the principles of the code would be respected.
7. The Association should authorize the development of those
Standards and procedures for admission to the organization
which will promote the general acceptance of the foregoing
recommendations.
The Committee recommends that the Executive Committee of
the Association be instructed to give careful consideration to the
report of the Committee on Certification of Superintendents of
Schools, and that it adopt measures such as will tend to make ef-
fective the recommendations contained in this report.
| 48 |

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